West Yorkshire Fire and Rescue Authority

WEST YORKSHIRE FIRE AND RESCUE AUTHORITY

MEETING TO BE HELD ON FRIDAY 18 DECEMBER 2009 AT 10.30 A.M. IN THE TRAINING AND CONFERENCE SUITE, BIRKENSHAW

AGENDA

1. CHAIRMAN’S ANNOUNCEMENTS

2. ADMISSION OF THE PUBLIC The Committee is asked to consider whether, by resolution, to exclude the public from the meeting during the items of business marked with an ‘E’ reference, because of the possibility of the disclosure of exempt information.

3. URGENT ITEMS To determine whether there are any additional items of business which, by reason of special circumstances, the Chair believes should be considered at the meeting.

4. DECLARATIONS OF INTEREST

To consider any Declaration of Interest in relation to any item of business on the agenda.

5. MINUTES OF THE LAST MEETING HELD ON 4 SEPTEMBER 2009 (pp 3)

(Enclosed)

6. MINUTES OF THE PERSONNEL AND TRAINING COMMITTEE HELD ON (pp 8)

a) 25 September 2009 b) 4 December 2009

(Enclosed)

7. MINUTES OF THE FINANCE AND RESOURCES COMMITTEE HELD ON 16 OCTOBER 2009 (pp 16)

(Enclosed)

8. MINUTES OF THE AUDIT COMMITTEE (pp 23)

a) 18 September 2009 b) 23 October 2009

(Enclosed)

9. MINUTES OF THE EXECUTIVE COMMITTEE (pp 31)

a) 28 September 2009 b) 6 November 209

(Enclosed where available)

10. MINUTES OF THE STANDARDS COMMITTEE HELD ON 22 OCTOBER 2009 (pp 38)

(Enclosed)

11. LOCAL GOVERNMENT ASSOCIATION MINUTES (pp 68)

a) Safer Communities Board – 14 September 2009 and 9 November 2009 b) Fire Services Management Committee – 18 September 2009 and 23 November 2009 c) Fire Services Forum – 16 October 2009

(Enclosed)

12. MINUTES OF THE REGIONAL MANAGEMENT BOARD HELD ON 1 OCTOBER 2009 (pp 91)

(Enclosed)

13. MINUTES OF THE FIRE AUTHORITIES’ REGIONAL CONTROL CENTRE LOCAL AUTHORITY CONTROLLED COMPANY (LACC) HELD ON 15 OCTOBER 2009 (pp 98)

(Enclosed)

14. CHANGE IN MEMBERSHIP AND APPOINTMENTS TO COMMITTEES 2009 – 10 (pp 100)

(Enclosed)

15. APPOINTMENTS TO OUTSIDE BODIES – FIRE AUTHORITIES IMPROVEMENT GROUP and METROPOLITAN FIRE AUTHORITIES COORDINATING GROUP (pp 102)

(Enclosed)

16. PERFORMANCE MANAGEMENT REPORT (pp 105)

(Enclosed)

17. CHANGES TO AUTHORITY’S CONSTITUTION – PUBLIC SPEAKING (pp 135)

(Enclosed)

18. MEMBER CHAMPIONS

a) PROTOCOL (pp 138) b) 2009 – 10 UPDATE (pp 143)

(Enclosed)

19. INTEGRATED RISK MANAGEMENT PLAN - OUTCOME OF STRATEGIC REVIEWS (pp 151)

(Enclosed)

20. INTEGRATED RISK MANAGEMENT PLAN – FIRE PROVISION – NORMANTON AREA (pp 189)

(Enclosed)

21. NEW DIMENSION – TRANSFER OF ASSETS ( pp 201)

(Enclosed)

22. COMPREHENSIVE AREA ASSESSMENT (CAA) RESULTS 2009 (pp 234 )

(Enclosed)

23. UNWANTED FIRE SIGNALS – UPDATE (pp 249)

(Enclosed)

24. FIRE DEATHS AND INJURIES (pp 256)

(Enclosed)

25. FIRE SAFETY ACTIVITY REPORT (pp 268)

(Enclosed)

WYFRA FULL 18 DECEMBER 2009 ITEM NO AUTHORITY

REPORT OF: DIRECTOR OF CORPORATE RESOURCES

PURPOSE OF REPORT: TO CONSIDER A REQUEST FROM THE REGIONAL CONTROL CENTRE COMPANY TO GIVE CONSENT TO A PROPOSAL BY SOUTH YORKSHIRE FIRE AND RESCUE AUTHORITY TO CHANGE ITS REPRESENTATION ON THE COMPANY BOARD FROM A COPRORATE DIRECTOR ARRANGEMENT TO REPRESENTATION BY THREE ELECTED MEMBERS

RECOMMENDATION: THAT THE AUTHORITY GIVES ITS APPROVAL TO THE RCC COMPANY REQUEST PERMITTING SOUTH YORKSHIRE FIRE AND RESCUE AUTHORITY TO CHANGE FROM CORPORATE TO HUMAN DIRECTOR REPRESENTATION ON THE COMPANY BOARD

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

ACCESS CONTACT OFFICER: MG Barnes 01274 655710

BACKGROUND PAPERS OPEN TO INSPECTION: None

1 BACKGROUND

1.1 South Yorkshire Fire and Rescue Authority wish to change their representation on the RCC Company form a Corporate Director arrangement (in which the FRA itself is legally the Director but is represented by up to 3 Members) to one in which 3 elected members are each legally appointed as Directors of the Company as is the case with the appointments made by this Authority which has 4 (human) Directors.

1.2 This change requires the approval of all four FRA’s and the Company Secretary has requested that each FRA gives its approval under the Articles of Association (letter dated 15 December attached). The change will have no impact on respective voting rights and is arguably a more democratic and transparent arrangement and in the circumstances the Authority is recommended to give it approval to the change.

WYFRA FULL AUTHORITY 18 DECEMBER 2009 ITEM NO

REPORT OF: Director of Corporate Resources (Monitoring Officer)

PURPOSE OF REPORT: To note a change in membership of the Authority which also varies the balance of political parties represented on the Authority and which requires a consequential reallocation of seats amongst two of the political groups on Authority Committees.

RECOMMENDATIONS: That the Authority

1 Note the change in membership and political balance.

2 Reallocate 2 ordinary committee seats from the Labour group to the Liberal Democrat group as recommended in paragraph 1.4 of this report

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: Nil

ACCESS CONTACT OFFICER: M G Barnes 01274655710

BACKGROUND PAPERS OPEN TO INSPECTION:

SUMMARY

This report informs the Authority of a change in the identity and political group of one of the two Members nominated by Calderdale Council and explains the requirements of the Local Government and Housing Act 1989 requiring the reallocation of committee seats consequent upon the change in the political balance.

1 Background

1.1 Acting pursuant to their powers under Section 31 of the Local Government Act 1986 Calderdale Council terminated the appointment of Councillor B Smith (Labour) and appointed Councillor D O’Neill (Liberal Democrat) in his

place. The termination / new appointment took effect at midnight on 2 November 2009.

1.2 The new appointment varied the political balance on the Authority by reducing the number of Labour Members from 10 to 9 and increased the number of Liberal democrats from 4 to 5. The new balance of political groups represented on the Authority (whose total membership is 22) is:

Labour 9 Conservative 7 Liberal Democrat 5

In addition there is a single Member (Cllr Finnegan) who is not in a political group.

1.3 This change in political balance requires a review of the allocation of committee seats. There are 36 ordinary committee seats. The net effect of the change in the political balance is to reduce the overall Labour allocation from 17 seats to 15 and to increase the overall Liberal Democrat allocation from 7 seats to 9 seats. The Conservative Group allocation of 12 seats (including the seat they have chosen to allocate to the non Group member) is not affected.

1.4 Applying the statutory principles of allocation I calculate that a seat on the Finance and Resources Committee should transfer from Labour to the Liberal Democrats along with a seat on either the Audit Committee or the Executive Committee and the Authority is recommended to make an allocation determination accordingly. The Liberal Democrat Group should identify its appointees to the seats vacated by the Labour Group. The party groups may wish to use this opportunity to consider whether they wish to change any of their committee appointments within their overall allocations.

1.5 The Committee Chair and Vice Chair positions are not directly affected by this change in political balance. For information purposes currently they are as follows:

Committee Chair Vice chair

Executive Councillor D Ridgway Councillor P Booth Personnel & Training Councillor D Hollingsworth Councillor V Binney Finance & Resources Councillor P Harrand Councillor D Ginley Audit Councillor V Binney Councillor D Gray

AGENDA WEST FULL AUTHORITY NO YORKSHIRE FIRE 18 DECEMBER 2009 AND RESCUE AUTHORITY

REPORT OF: DIRECTOR OF CORPORATE RESOURCES

PURPOSE OF REPORT: TO CONSIDER APPOINTMENTS TO OUTSIDE BODIES FOR THE YEAR 2009 / 2010

RECOMMENDATION: THAT THE AUTHORITY DETERMINES ITS APPOINTMENT OF REPRESENTATIVES TO OUTSIDE BODIES FOR THE YEAR 2009 / 2010 AND CONSIDERS THE INCLUSION OF THE ORGANISATIONS ON THE LIST OF OUTSIDE BODIES (APPOINTMENTS TO BE REVIEWED ANNUALLY)

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY:

CONTACT OFFICER: M G BARNES - 01274 655732

BACKGROUND PAPERS OPEN TO INSPECTION:

Summary

The Authority makes appointments annually to outside bodies in order that it has a voice and a role in the decisions taken by those bodies which may impact, directly or indirectly, upon the work of the Authority.

Member are requested to consider inclusion of the Fire Authorities Improvement Group and the Association of Metropolitan Fire Authorities on the agreed list of outside bodies.

1 BACKGROUND

1.1 Appointments to a number of outside bodies for 2009 / 2010 were confirmed at the Annual meeting of the Authority held on 19 June 2010.

1.2 Since the date of that meeting, membership of the Authority has changed (as reported elsewhere on this agenda) and notification has been received from other newly-established bodies seeking nominations.

1.3 LOCAL AUTHORITY CONTROLLED COMPANY (LACC)

Councillor B Smith had been appointed substitute Director on the Yorkshire and Humberside Regional Control Centre Local Authority Controlled Company. This position has been vacant since 3 November and Members are asked to make appoint a replacement.

It has been the case in this Authority that substitute Directors of the LACC are the same members as the substitute members for the Regional Management Board.

For ease of administration, confirmation is therefore sought that the substitute appointment made to the LACC be the same as the substitute appointment made to the Regional Management Board (item 14 on this agenda refers).

1.4 FIRE AUTHORITIES IMPROVEMENT GROUP

The Group currently includes representation from Staffordshire, Cleveland, Merseyside, Kent and West Yorkshire Fire and Rescue Services and meets 2 – 3 times per year, each Brigade taking a turn in hosting. The main aims of the Group are;

• information sharing and best practice at member and officer level to develop initiatives and resources that will assist each Authority in the implementation of its improvement programme • working with national bodies to share notable and best practice across the wider fire and rescue service and public service sector

Whilst the Group wishes to remain established on a relatively informal basis it does wish to include formal Member representation (notably the Chair of each participating FRA). In order for our Chair to be able to attend the meetings, approval is required from our own Authority for the appointment and associated reimbursement of any travel and subsistence expenses incurred.

1.5 ASSOCIATION OF METROPOLITAN FIRE AUTHORITIES (AMFRA)

Following a number of successful informal meetings comprising representation from the six Metropolitan Fire Authorities (Tyne and Wear, West Yorkshire, Greater Manchester, Merseyside, West Midlands and South Yorkshire) it was agreed that a Coordinating Group be formally established. The London Fire and Emergency Planning Authority (LFEPA) will also engage with the Group as appropriate.

The remit of the Group is;

• to better promote the views of the Metropolitan Authorities and • to add rigour to the dialogue already established between central Government and those responsible for the delivery of efficient and effective fire and rescue services.

The Group has agreed a Constitution comprising two elected Members, the Chief Fire Officer and Chief Finance Officer from each Authority.

A copy of the Terms of Reference of the AMFRA are available from the secretariat upon request.

2. FINANCIAL IMPLICATIONS

2.1 Travel and subsistence allowances for attendance at meetings of the outside bodies will be met from within the existing revenue budget.

West Yorkshire Fire & Rescue Service

PPeerrffoorrmmaannccee MMaannaaggeemmeenntt aanndd AAccttiivviittyy RReeppoorrtt 22000099//1100

Period Covered: 1 April 2009 – 31 October 2009 Date Issued: 30 November 2009

Table of Contents

Contents Page No.

1. Introduction/Summary 8 2. Target Summary – Overview 12 3. National Indicators – Performance 15 4. Service Delivery Indicators – Performance 23 5. Corporate Health Indicators – Performance 34 6. Performance Indicators – Comparison with other Metropolitan Fire and Rescue Services 50 7. Incidents 62 Chargeable Special Service Calls – District Performance 65 8. ‘Five Pumps and Above’ Incidents (to 30 November 2009) 67 9. Home Fire Safety Checks 73 Smoke Alarm Ownership 75 10. Compliments and Complaints 77 11. Violence at Work 81 District Actions to Address Violence 84

1. Introduction/Summary

The purpose of this report is to provide information regarding the performance of West Yorkshire Fire and Rescue Service against selected national and local targets to enable the Authority to measure, monitor and evaluate performance.

The national targets identified in this report are contained within the following performance indicators:

• NI 33: Arson Incidents • NI 49: Primary Fires • NI 47: People Killed or Seriously Injured in Road Traffic Accidents • NI 48: Children Killed or Seriously Injured in Road Traffic Accidents

There are also a number of performance indicators developed by CFOA (Chief Fire Officers Association) which West Yorkshire Fire and Rescue Service has chosen to adopt. Monitoring these indicators is entirely voluntary for Fire Services across the country, but the advantage of adopting some of them is that it may provide scope for comparison with other authorities who have adopted the same indicators.

In this report, appropriate and progressive monthly statistics have been utilised to identify trends in performance, with corresponding information regarding the action being taken to address any areas of under-performance. Information regarding a selection of local performance targets has also been provided in this report and comparisons have been made with the previous year’s performance.

All data, unless specified, is for the reporting period 1 April 2009 – 31 October 2009.

A traffic light system has been employed to provide a straightforward visual indicator of performance against each specific target.

Comparative data, in respect of other Metropolitan Fire Authorities, is included in this report, to allow West Yorkshire Fire and Rescue Service to benchmark its performance against those of similar authorities.

Graphical representation of the performance of West Yorkshire Fire and Rescue Service is available via the Performance Information Management System (PIMS), which is accessed via the Service’s intranet site.

Performance Management Report Page 3 of 31

2. Target Summary – Overview Legend Purple indicates target not applicable Red indicates not achieving target Amber indicates satisfactory performance (within 10% of target) Green indicates achieving or exceeding target Grey indicates there is currently no data available for this indicator Direction of travel, compared to position at this time last year Targets by Indicator Category

Service Delivery Indicators Corporate Health Indicators Other Local Service Indicators (CFOA reference) (CFOA reference)

NI 33 – Arson Incidents CH 1 – Equality Standard Special Service Calls

NI 49 – Primary Fires CH 2 (CFOA C3) – Female Recruits Incidents – 5 Pumps and Above

NI 47 – People Killed or Seriously CH 3 (CFOA C4) – BME Recruits Home Fire Safety Checks Injured in Road Traffic Accidents

NI 48 – Children Killed Seriously CH 4 (CFOA C2) – Sickness Compliments/Complaints Injured in Road Traffic Accidents

SD 1 (CFOA D1) – Accidental Dwelling CH 5 (CFOA A5) – Health & Safety Violence at Work Fires (Total)

SD 2 – Accidental Dwelling Fires CH 6 (CFOA E1) – Business

(Deaths) Continuity

SD 3 – Accidental Dwelling Fires CH 7 – Expenditure per Capita (Injuries)

SD 5 (CFOA A2(i)) – False Alarms CH 8 – Budget Variance (£s) (Malicious Not Attended))

SD 6 (CFOA A2 (ii)) – False Alarms CH 9 – Budget Variance (% against

(Malicious Attended) overall Budget)

SD 7 (CFOA A1) – Automatic Fire CH 10 – Payment of Invoices Detection – Non Domestic

SD 9 – Fires in non-domestic premises CH 11 – Capital Payments (£s)

SD 10(a) – % Fires where Smoke Alarm CH 12 – Capital Payments (%

Fitted against overall Budget)

SD 10(b) - % Fires where Smoke Alarm CH 13 – Debtors Faulty

SD 10(c) - % Fires where Smoke Alarm CH 14 – Customer Satisfaction Correct

SD 10(d) % Fires where no Smoke

Alarm Fitted

SD 12 MACC Call Handling Times

Performance Management Report Page 4 of 31

3. National Indicators – Performance (Figures for the National Indicators may be subject to slight variation between reports. This is mainly due to the date of completion of the report being before all the auditing of the data is complete.)

Direction Cumulative Year to Date Performance of Travel compared Target NI Description to Full Comment To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 position at this Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar time last year

Arson Incidents On track to achieve (All Deliberate Fires) 6.41 10.63 15.46 18.92 23.57 29.46 35.40 65.22 year end target. per 10,000 population (33.22)

Arson Incidents (Deliberate Primary On track to achieve NI 33 1.02 1.98 2.97 3.67 4.54 5.42 6.26 15.12 Fires) year end target. per 10,000 population (7.94)

Arson Incidents (Deliberate On track to achieve 5.39 8.65 12.49 15.25 19.03 24.03 29.14 50.10 Secondary Fires) year end target. per 10,000 population (25.28)

Performance Management Report Page 5 of 31

Direction of Cumulative Year to Date Performance Travel compared to position at Target NI Description this time last Comment To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 year Full Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar

Number of On track to achieve Primary Fires per 19.26 37.78 56.57 72.57 88.94 104.47 121.29 260.78 year end target. 100,000 population (137.17)

Number of Fire Fatalities per 100,000 population – 0.00 0.14 0.18 0.28 0.28 0.27 0.27 0.46 Target set as per Accidental Dwelling SD2. Fires NI 49 (0.23) Number of Fire Other fires include: Fatalities per No target 0.05 0.05 0.05 0.05 0.05 0.05 0.09 N/A Murders, Suicides 100,000 population – set and Road Traffic Other Fires Collisions.

Number of Fire Casualties (excluding 1.28 1.97 2.70 3.71 3.81 4.45 5.45 14.10 On track to achieve precautionary checks) year end target. per 100,000 population (6.24)

Performance Management Report Page 6 of 31

Cumulative Performance (09 Calendar Year) Direction of Travel Target Indicator Description compared Full Comment To 31 To 28 To 31 To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 to position at this time Year Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec last year Targets are based on the National Target of 40% reduction on the 94-98 average by 2010.

People Killed or Figures are for the Seriously Injured New period Jan – Jun NI 47* 470 948 (KSI) in Road Traffic Indicator 2009. The figures are Accidents showing a downward trend. This is the first time KSI < 500 in the first 6 months of the year, but slightly above target trajectory. Targets are based on the National Target of 50% reduction on the 94-98 average by Children Killed or 2010. Seriously Injured New NI 48* 79 149 (KSI) in Road Traffic Indicator Figures are for the Accidents period Jan – Jun 2009. The figures are showing a flat trend and are above the target trajectory.

*Note: West Yorkshire Fire and Rescue Service is not directly responsible for performance against the above two indicators. Performance is reflective of the West Yorkshire Local Transport Plan for the reduction of ‘Killed and Seriously Injured’ and the work done by the West Yorkshire Safer Roads Partnership. West Yorkshire Fire and Rescue Service is a representative of the West Yorkshire Safer Roads Partnership alongside the 5 District Councils, West Yorkshire Police, Yorkshire Ambulance, Highways Agency, West Yorkshire Casualty Reduction (Safety Camera) Partnership and NHS Primary Care Trusts.

Data for this indictor is supplied by West Yorkshire Safer Roads (Accident Studies Unit) on a quarterly basis. The provisional data is produced three months in arrears. The final figures for the full calendar year are validated the following April. Performance Management Report Page 7 of 31

4. Service Delivery Indicators – Performance

(Figures for the Service Delivery Indicators may be subject to slight variation between reports. This is mainly due to the date of completion of the report being before all the auditing of the data is complete.)

Accidental dwelling fires (per 10,000 On track to achieve SD 1 1.26 2.41 3.51 4.78 5.91 6.70 7.86 17.2 dwellings) (CFOA year end target. D1) (8.01) Volatile indicator. Number of deaths Difficult to predict arising from performance trend. SD 2 accidental fires in 0.00 0.14 0.18 0.28 0.28 0.27 0.27 0.46 Change from 0.28 to dwellings per 0.27 due to recent 100,000 population update in population (0.23) figure.

Number of Injuries arising from On track to achieve SD 3 accidental fires in 0.73 0.96 1.42 1.83 2.11 2.59 2.95 11.05 year end target. dwellings per 100,000 population (4.63) Number of calls to malicious false alarms per 1000 On track to achieve SD 5 0.03 0.06 0.10 0.13 0.17 0.20 0.23 1.22 population – year end target. not attended (CFOA A2(i)) (0.30)

Performance Management Report Page 8 of 31

Direction Cumulative Year to Date Performance of Travel compare Indicator Description Target Comment d to Full To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 position at this Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar time last year Number of calls to malicious false alarms per 1000 On track to achieve SD 6 0.03 0.07 0.11 0.13 0.16 0.18 0.21 0.82 population – year end target. attended (CFOA A2(ii)) (0.30) Unwanted fire signals from automatic fire On track to achieve SD 7 detection equipment 6.8 14.0 22.69 29.22 37.14 45.51 52.04 112.53 year end target. per 1000 nondomestic properties (CFOA A1) (51.07)

Fires in nondomestic premises On track to achieve SD 9 per 0.66 1.38 2.10 2.55 3.24 3.86 4.43 10.5 year end target. 1000 non-domestic premises (4.35)

Performance Management Report Page 9 of 31

Direction Cumulative Year to Date Performance of Travel compared Indicator Description Target Comment to Full To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 position at this Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar time last year The percentage of fires attended in SD On track to achieve dwellings where there 55.8% 48.7% 47.1% 47.3% 48.2% 47.9% 48.8% 38.1% 10(a) year end target. was a working smoke alarm (50.3%) The percentage of fires attended in dwellings where a SD On track to achieve smoke alarm, 8.0% 7.9% 6.6% 6.7% 7.1% 8.2% 6.76% 9.5% 10(b) year end target. because it was faulty or incorrectly sited, did not activate (9.0%) The percentage of This indicator is used fires attended in to identify where a SD dwellings where a 10.9% 14.6% 14.5% 14.9% 14.1% 15.0% 18.1% N/A N/A smoke alarm has not 10(c) correctly sited and activated for working smoke alarm legitimate reasons. did not activate

The percentage of fires attended in SD On track to achieve dwellings where no 25.4% 28.8% 31.8% 31.0% 30.5% 28.9% 26.6% 51.6% 10(d) year end target. smoke alarm was fitted (33.3%)

Performance Management Report Page 10 of 31

Cumulative Year to Date Performance Direction of Travel Target Indicator Description compared Full Comment To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 to position at this time Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar last year

Performance trend Time taken from improved consistently accepting a call from during the last year. the British Telecom 60 operator, to 60.97 59.57 59.52 58.83 58.64 58.69 58.29 N/A SD 12 seconds Performance is mobilisation of Fire measured against an and Rescue Service optimum standard of resources 60 seconds.

Performance Management Report Page 11 of 31

5. Corporate Health Indicators – Performance

Direction of Cumulative Year to Date Performance Travel compared to Target Indicator Description To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 position at Full Year Comment this time last Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar year Gap analysis at Level 5 The level (if any) of the will take place in Equality Standard for January 2010 with a CH 1 Local Government to 4 4 view to achieving which the Authority Excellence by conforms (3) December 2011. During 2009-10 there have been 90 new Female firefighters as firefighter recruits, of new entrants to the Fire 20.00% 9.09% 10.42% 10.20% 11.76% 7.87% 7.78% CH 2 10.13% whom, 7 are female. and Rescue Service (1/5) (4/44) (5/48) (5/49) (6/51) (7/89) (7/90) (CFOA C3) There are 2 RDS (9.89%) women in the recruitment process. Female firefighters as During Nov 08 – Oct 09 there have been 13 new entrants to the Fire 11.51% 10.87% 11.43% 11.43% 11.68% 11.03% 9.77% New CH 2b 10.13% and Rescue Service – (16/139) (15/138) (16/140) (16/140) (16/137) (16/145) (13/133) Indicator Female firefighters Rolling 12 month total recruited out of 133 new firefighter recruits. During 2009-10 there Minority ethnic staff as have been 129 new new entrants to the Fire 0.00% 6.00% 7.02% 7.46% 8.75% 7.32% 6.98% recruits, of whom, 9 are CH 3 9.88% and Rescue Service (0/9) (3/50) (4/57) (5/67) (7/80) (9/123) (9/129) BME. (CFOA C4) No BME staff recruited (10.14%) during October. Minority ethnic staff as During Nov 08 – Oct 09 new entrants to the Fire 9.38% 7.34% 7.18% 7.55% 7.87% 7.34% 7.66% New CH 3b 9.88% there have been 16 and Rescue Service – (21/224) (16/218) (15/209) (16/212) (17/216) (16/218) (16/209) Indicator BME recruits out of 209 Rolling 12 month total new recruits to the FRS. Employees no longer Average number of being paid by the working days / shifts Authority have been CH 4 0.55 1.09 1.65 2.26 2.82 3.03 3.66 6.63 lost to sickness (CFOA removed in the C2) calculation of this (4.47) indicator.

Performance Management Report Page 12 of 31

Cumulative Year to Date Performance Target Indicator Description To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 Full Year Comment Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar

< 3 days 16 35 48 67 76 91 110 190 Injuries

Fatal 0 0 0 0 0 0 0 0

Health and Safety (CFOA A5) (Total injuries) Major 0 0 2 2 2 2 2 Not set Outturn is the 09-10 Q1 Performance.

Targets are based on a 5% reduction from 08- 3 + days 3 7 12 14 15 18 21 39 09 figures by 11-12 on total < 3 days injuries and total > 3 days CH 5 injuries. < 3 days 743 1625 2228 3110 3528 4225 5107 8805 Injuries There is a target of 0 fatalities for the year.

Due to such low numbers, no target has Fatal 0 0 0 0 0 0 0 0 been set for major Health and Safety injuries. (CFOA A5) (Total injuries per 100,000 staff) Major 0 0 93 93 93 93 93 Not set

3 + days 139 325 557 650 696 836 975 1826

Performance Management Report Page 13 of 31

Direction of Cumulative Year to Date Performance Travel Target Indicator Description compared To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 to position Full Year Comment Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar at this time last year 73.33% is made up of four Level 4s and two level 3s achieved Self assessment against a business continuity against the maturity Business Continuity New CH 6 maturity model including 6 measures and 5 73.33% 83.33% model. Planning (CFOA E1) Indicator levels, giving a maximum score of 100% Annual return, actions are being put into place to ensure 83.33% is achieved by April 2010. The figure reported is 2008/9 outturn (target £41.21) which has now Expenditure per head been confirmed. of population on the CH 7 £38.45 N/A £39.20 provision of fire and Reduction on last year rescue services is because the population has increased at a greater rate than expenditure.

Forecast Budget New Figures to be provided CH 8 Variance -£500,000 -£1m £900,000 Indicator on a quarterly basis. (Actual figures £s)

Forecast Budget Variance New Figures to be provided CH 9 0.55% 1.1% <1% (% Variance against Indicator on a quarterly basis. overall budget)

Performance Management Report Page 14 of 31

Cumulative Year to Date Performance -Cost Period Dates Year 2009-10 Target Indicator Description Comment 5 Apr – 3 May – 31 May – 28 Jun – 26 Jul – 23 Aug – 20 Sep – 18 Oct – 15 Nov – 13 Dec – 10 Jan – 7 Feb – 7 Mar – Full Year 26 Apr 24 May 21 Jun 19 Jul 16 Aug 13 Sep 11 Oct 8 Nov 6 Dec 3 Jan 31 Jan 28 Feb 31 Mar

The percentage of Progressive roll-out of invoices for goods and the corporate credit services paid by the CH 10 96.65% 96.95% 88.22% 98.00% 97.19% 95.52% 97.47% 98.86% card will increase the Authority within 30 100% proportion of invoices days paid within 30 days. (stand alone month) Figures to be provided on a monthly basis

Forecast Capital £5.3m Targets are based on a CH 11 Payments (Actual £0.4m £0.7m £1.8m £2.2m £2.8m £3.4m £4.3m £5.28m (£7.5m) (£9.0m) (£10.2m) (£11.7m) (£19.2m) (Oct profiled spending of the figures £s) target) capital plan, starting from October. Targets for each individual month are in brackets. Figures to be provided on a monthly basis

Forecast Capital 27.54% Targets are based on a Payments (% CH12 1.95% 3.72% 9.21% 11.21% 14.38% 17.65% 22.21% 27.54% (39.28%) (46.68%) (53.33%) (60.89%) (100%) (Oct profiled spending of the Payments of overall capital plan, starting capital plan) target) from October. Targets for each individual month are in brackets.

Debtors – Value of Information Figures to be provided CH 13 debt outstanding which £75,134 £77,037 £69,605 £61,278 £65,857 £70,238 £66,328 £57,768 Only on a monthly basis. is over 60 days old

Performance Management Report Page 15 of 31

Cumulative Year to Date Performance Direction of Travel Target Indicator Description compared Comment To 30 To 31 To 30 To 31 To 31 To 30 To 31 To 30 To 31 To 31 To 28 To 31 to position Full Year Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar at this time last year

Quality of Service: Domestic 98.92% >95% (98.54%)

Annual Survey. These Customer Satisfaction - Quality of Service: Non Domestic 100% >95% satisfaction results are % Overall Satisfaction obtained through the CH 14 with the service (100%) Opinion Research provided: Survey conducted throughout the year. New Home Fire Safety Checks 99.73% Indicator >95%

New School Fire Safety Visits 99.57% Indicator >95%

Performance Management Report Page 16 of 31

6. Performance Indicators – Comparison with other Metropolitan Fire and Rescue Services The Metropolitan Fire and Rescue Services share information on a quarterly basis in respect of performance indicators. Information for the second quarter of 2009/10 (1 April – 30 September) and positions for the individual indicators are shown below. The information is unaudited and therefore may be subject to minor amendments, but it does allow up to date performance comparisons to be made between WYFRS and similar ‘family group’ FRSs.

Data is also subject to the Metropolitan Fire and Rescue Authorities agreeing to share this data with WYFRS.

National Indicators Indicator Description Greater South Tyne & West West London Merseyside Manchester Yorkshire Wear Midlands Yorkshire 28.89 4.95 38.41 25.12 32.11 23.07 29.46 NI 33(i) Arson Incidents (All Deliberate Fires) per 10,000 population (7,403) (3,775) (5,177) (3,281) (3,498) (6,008) (6,482) Arson Incidents (Deliberate Primary Fires) per 10,000 7.15 Not 8.13 6.49 5.97 4.40 5.42 NI 33(ii) population (1,831) reporting (1,098) (847) (650) (1,147) (1,192) Arson Incidents (Deliberate Secondary Fires) per 10,000 21.75 Not 30.21 18.64 26.15 18.67 24.03 NI 33(iii) population (5,572) reporting (4,079) (2,434) (2,848) (4,861) (5,289) 148.62 97.04 153.46 127.19 117.1 104.61 104.47 NI 49(i) Number of Primary fires per 100,000 population (3,808) (7,304) (2,072) (1,661) (1,275) (2,724) (2,299) 0.47 0.30 0.37 0.31 0.18 0.38 0.32 NI 49(ii) Number of Fire Fatalities per 100,000 population (12) (23) (5) (4) (2) (10) (7) Number of Fire Casualties (exc. Preliminary Checks) per 5.39 5.14 5.85 2.91 3.03 3.30 4.45 NI 49(iii) 100,000 population (138) (392) (79) (38) (33) (86) (98)

Note 1: Actual numbers shown in brackets. Key 1st 3rd 5th 7th (Best) (Worst)

2nd 4th 6th

Performance Management Report Page 17 of 31

Service Delivery Indicators Indicator Description Greater South Tyne & West West London Merseyside Manchester Yorkshire Wear Midlands Yorkshire Number of calls to: Accidental Fires in Dwellings per 10,000 11.13 9.74 10.49 6.27 7.2 8.15 6.70 SD 1 dwellings (CFOA D1 Indicator) (1,234) (3,107) (627) (345) (346) (903) (608) Number of deaths arising from accidental fires in dwellings per Not 0.28 0.30 0.15 0.09 0.23 0.27 SD 2 100,000 population reporting (21) (4) (2) (1) (6) (6) Number of injuries arising from accidental fires in dwellings per Not 3.82 4.23 1.68 2.01 1.84 2.59 SD 3 100,000 population reporting (268) (57) (22) (22) (48) (57) Number of calls to malicious false alarms per 1000 population - 0.42 0.24 0.08 0.05 0.05 Not 0.20 SD 5 non attended (CFOA A2 Indicator) (1,082) (1,849) (102) (71) (50) reporting (448) Number of calls to malicious false alarms per 1000 population - 0.16 0.17 0.14 0.06 0.14 0.34 0.18 SD 6 attended (CFOA A2 Indicator) (404) (1,333) (190) (75) (148) (886) (397) False alarms caused by automatic fire detection apparatus per 40.77 56.07 49.25 22.24 51.8 36.12 45.51 SD 7 1000 non domestic properties (CFOA A1 Indicator) (3,767) (15,672) (1,888) (824) (1,627) (3,309) (3,429) Fires in non-domestic premises per 1000 non-domestic 5.60 6.14 Not 3.72 6.68 5.23 3.86 SD 9 premises (517) (1,717) reporting (138) (171) (479) (291) The percentage of fires attended in dwellings where a smoke 55.83% Not Not Not Not SD 10a 49.7% 47.9% alarm had activated (CFOA C1 Indicator) (689) reporting reporting reporting reporting The percentage of fires attended in dwellings where no smoke 37.84% 58.97% Not Not Not SD 10c 30.3% 28.9% alarm was fitted (CFOA C1 Indicator) (467) (2,065) reporting reporting reporting

Note 1: Actual numbers shown in brackets. Key 1st 3rd 5th 7th (Best) (Worst)

2nd 4th 6th

Performance Management Report Page 18 of 31

Corporate Health Indicators Indicator Description Greater South Tyne & West West London Merseyside Manchester Yorkshire Wear Midlands Yorkshire The level (if any) of the Equality Standard for Local Data not CH 1 Government 3 5 currently 3 4 3 4 to which the Authority conforms available

Data not Data not Data not Female firefighters as new entrants to the Fire and Rescue Not CH 2 currently 14.01% currently 0.00% currently 7.87% Service reporting available available available

Data not Data not Data not Minority ethnic staff as new entrants to the Fire and Rescue Not CH 3 currently 19.10% currently 9.50% currently 7.32% Service reporting available available available

Data not Data not The number of working days/shifts per employee lost due to Not CH 4 5.33 currently 3.50 3.79 currently 3.03 sickness absence - All Staff (CFOA C2 Indicator) reporting available available

Data not The percentage of invoices for goods and services paid by the Not Not CH 7 95.10% currently 94.30% 99.20% 95.52% Authority within 30 days reporting reporting available

Data not Data not Data not Expenditure per head of population on the provision of fire and Not Not Not CH 8 currently currently currently £38.45 rescue services reporting reporting reporting available available available

Note 1: Actual numbers shown in brackets. Key 1st 3rd 5th 7th (Best) (Worst) Note 2: Where two FRS's have achieved equal placing, both are shown in the same colour. 2nd 4th 6th

Performance Management Report Page 19 of 31

7. Incidents The table and chart below show the operational activity of West Yorkshire Fire and Rescue Service for the financial year to date, broken down into category of incident.

Incident Category Number Percentage Primary Fires 2,669 12.0% Secondary Fires 7,327 32.8% Road Traffic Collisions 617 2.8% Special Service Calls 1,317 5.9% False Alarm - Apparatus Domestic 3,291 14.7% False Alarm - Apparatus Non-Domestic 3,921 17.6% False Alarm - Good Intent 2,710 12.1% False Alarm - Malicious 470 2.1% Total 22,322 100%

Primary Fires

470 2,669 2,710 Secondary Fires

Road Traffic Collisions

Special Service Calls 3,921 False Alarm - Apparatus 7,327 Domestic False Alarm - Apparatus Non-Domestic 3,291 False Alarm - Good Intent 1,317 617 False Alarm - Malicious

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The Fire and Rescue Services Act 2004 sets out the categories of service for which charges can be made by FRA’s and the persons who can be charged. However, the Act limits the amount charged to the cost of providing the service and prohibits FRA’s from charging for fire-fighting or for the provision of emergency medical assistance. The sum recovered so far for 2009/10 is approximately £67,506.34 which is mostly comprised of charges for lift rescues (£51,823.95).

The chart below summarises the number of special service calls (chargeable and non- chargeable) attended by West Yorkshire Fire and Rescue Service for the financial year to date and provides a comparison with the figures for 2008/9.

Total Special Service Calls by Month 2008/9 300 248 2009/10 250 230 210 217 219 202 19 4 205 202 19 6 202 172 19 0 18 7 200 179 16 7 172 171 17 3 150

100

ch July ber ber April May June tober ar em c M August O January February Sept NovemberDecem

Chargeable Special Service Calls – District Performance

The chart below summarises the performance of special services by each respective district for the 2009/10 financial year to date. Specific information relating to lift rescues has been included, as these incidents occur more frequently than other ‘special service’ categories.

Special Service Calls 2009/10 by District

600 545 Lift Rescues 500 Total SSCs 400 286 300 217 200 128 129 141 100 35 23 26 12 0 d le es s ld dfor erda irkle Leed kefie Bra Cald K Wa

Performance Management Report Page 21 of 31

8. ‘Five Pumps and Above’ Incidents (to 30 November 2009)

General Commentary

A number of additional pumping and special appliances are often mobilised to these types of incidents to undertake supporting activities. Fire-related incidents of this type require the attendance of a fire investigation officer to determine the cause of the fire. The cause is included in the table, but in some circumstances, it may be uncertain, as follows:

Not known - the evidence that remained after the fire was insufficient to determine the cause Doubtful - thought to have been deliberate, but an accidental cause cannot be ruled out Not yet recorded / - as stated Pending Investigation

For fires identified as deliberate, we work in accordance with a regionally agreed Memorandum of Understanding with the police, who are responsible for the investigation of all deliberate fires. Each month, new incidents are added to the top of the table. These are shaded in white.

Pumps Date & Premises Station Number of Address Cause Plus Time Use Area Personnel Specials CC Continental 119- 22/11/09 129 Chapeltown 26 Electrical 10 pumps 10 Officers Supermarket 05:12 Road, Chapeltown, (Moortown) Appliance 2 specials 49 FFs Leeds Upwood Hall Farm, 14/11/09 46 Not yet 10 pumps 9 Officers Ilkley Road, Agricultural 17:31 (Keighley) recorded 2 specials 51 FFs Riddlesden, Keighley Apartment 18/10/09 Barkerend Road, 40 15 pumps 10 Officers under Deliberate 19:35 Bradford (Bradford) 6 specials 83 FFs construction Normanton Baptist 10/10/09 Church 88 11 pumps 10 Officers Church, King Edward Deliberate 22:55 Building (Normanton) 5 specials 63 FFs St, Normanton EK Animal Foods, 22/08/09 41 10 pumps 7 Officers Halifax Road, Industrial Deliberate 01:49 (Bingley) 2 specials 50 FFs Cullingworth Wortley Heights, 13/08/09 20 11 pumps 9 Officers Tong Road, Armley, Bin Chute Deliberate 20:41 (Leeds) 4 specials 58 FFs Leeds Turnshaws Special 20/07/09 Derelict 71 11 pumps 8 Officers School, Turnshaws Not Known 17:51 Building (Skelmantorpe) 2 special 55 FFs Avenue, Kirkburton 13/07/09 Canary Street, Electrical 62 Electrical 11 pumps 8 Officers 03:08 Cleckheaton Wholesalers (Cleckheaton) Appliance 4 specials 59 FFs 09/07/09 Wormald Street, 62 12 pumps 9 Officers Trailer Units Deliberate 04:08 Liversedge (Cleckheaton) 3 specials 62 FFs

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Pumps Date & Premises Station Number of Address Cause Plus Time Use Area Personnel Specials 10/06/09 Art Glass, Ripley 47 Under 21 pumps 10 Officers Industrial 23:00 Street, West Bowling (Odsal) Investigation 5 specials 111 FFs 06/05/09 Far Turbury Farm, 63 10 pumps 8 Officers Agricultural Electrical 05:24 Clegg Lane (Elland) 2 specials 51 FFs Greenhill Social 03/05/09 Eduction Centre, Office 40 10 pumps 9 Officers Deliberate 20:48 Florence St. (unoccupied) (Bradford) 3 specials 51 FFs Laisterdyke, Bradford 03/05/09 Manchester Road, 68 Smoking 10 pumps 4 Officers Moorland 14:26 Standedge, Marsden (Marsden) Materials 1 special 50 FFs 12/04/09 Oldham Road, 64 25 pumps 9 Officers Moorland Deliberate 10:15 Rishworth (Halifax) 5 specials 126 FFs

Performance Management Report Page 23 of 31

9. Home Fire Safety Checks

The number of home fire safety checks in October has Total Home Fire Safety Checks Completed been recorded as 5609, which 7000 is 921 more than the average 6048 monthly target. In twelve 5607 6000 5230 5692 5609 months of 2008/9, WYFRS 549 6 5477 have exceeded the target by 5244 5206 5063 6,177. 4933 4920 5000 The chart shows performance 4360 against the average monthly target and is formatted as per 4000 the traffic light colour scheme.

3000

2000

1000

Annual Target = 56250 Average Monthly Target = 4688

HFSCs Progress against Overall Target The Year 2 IRMP specified a target of 450,000 home fire 500000 Actuals Cumulative safety checks to be completed 450000 by 31 March 2013. Averaged 450000 Target 307851 393750 over the eight-year period, this 400000 sets an annual target of 56,250. 270277 337500 The number of completed home 350000 fire safety checks for 2008/9 207850 300000 281250 w as recorded on PIMS as 225000 62,427 w hich is 111% of this 250000 target. This total easily exceeds the 2007/8 total of 60,420. 200000 168750 From the beginning of 2004/5 to 150000 date, a total of 307,851 home 112500 fire safety checks have been 100000 56250 completed, representing 50000 progress of 68% tow ards the overall 2013 target of 450,000. 0 2004/5 2005/6 2006/7 2007/8 2008/9 2009/10 2010/11 2011/12 2012/13

Performance Management Report Page 24 of 31

Smoke Alarm Ownership

Better performance is indicated by a higher percentage.

Targets were initially set in March 2006, based on the 2005/6 outturn of 40.4%, aiming for an actual increase of 2% each year.

Through analysis of high risk areas and groups, with improvements in partner referrals and the targeting of resources, performance improved considerably during 2008/9, leading to a significantly improved outturn figure of 66.6%, far exceeding the target of 46.4%, and this improvement has continued in the seven months of 2009/10.

The chart below shows month by month performance against target and is formatted as per the traffic light colour scheme.

Percentage of Dwelling Fires Attended Where a Smoke Alarm Was Fitted 90 Target 2008/9 46.4% Target 2007/8 44.4% 81.3 80 75.7 76.8 74.2 71.0 69.0 70 66.6 66.9 64.3 Target 2006/7 42.4%

60 Target 2009/10 48.4%

44.7 50

40.4 40 38.8 37.7 37.9

4 /5 /6 /7 /8 9 9 0 2/3 3/ 4 5 6 7 -0 9 09 09 -1 r-09 n l-09 p-0 -09 c-09 p Ju ov- e 200 200 200 200 200 200 2008/9A May-0 Ju Aug- Se Oct N D Jan Feb-10Mar-10

Purple indicates no target set Red indicates target not achieved Amber indicates satisfactory performance (within 10% of target) Green indicates target achieved or exceeded

Performance Management Report Page 25 of 31

10. Compliments and Complaints

Compliments The charts below show by type the number of compliments and complaints received by West Yorkshire FRS since 1 April 2008, and provide a comparison between the years 2008/9 and 2009/10.

In the seven months of 2009/10, West Yorkshire FRS has recorded 207 compliments, which is slightly more than the previous year’s average of approximately 26.17 per month (314 in total).

Compliments by Type 2008/09 80 69 2009/10 70 64

60 51 46 50 43 45 39 40 35 28 27 30 25 19 20 11 11 5 10 2 1 0 Commercial CFS Fundraising HFSC Incident Ot her School V isit St at ion V isit Training Visit

Complaints After seven months of the financial year 2009/10, we have received twenty-five complaints as compared to fifty-two in the same period during 2008/9. (The high number 2008/9 complaints was exacerbated by the number received by CFS in relation to a mail shot where a number of enveloped were posted without stamps). Twenty-three of the 2009/10 complaints have been resolved at Stage I of the complaints procedure. Two are ongoing and have now gone to Stage II of the complaints procedure. Eleven of the complaints were upheld. All complaints are dealt with in a consistent manner, with appropriate remedial action taken where necessary. One 2008/9 complaint went to stage three but its investigation was concluded 15/05/09.

Complaints by Type 2008/09

40 37 2009/10

35 Operational complaints are those arising from 30 attendance at incidents and resultant inconvenience to the complainant 25 e.g. evacuation, appliance manoeuvring / parking, 20 hose laying, damage to property, charges levied 14 for lift rescues. 15

10 6 7 4 4 5 5 3 3 1 1 2 2 111 2 1 0 At t it ude CFS Driving Freedom of Incident On Dut y Operat ional Premises Recruit ment Secondary Station Training Inf ormat ion Emp

Performance Management Report Page 26 of 31

11. Violence at Work Attacks on Personnel Attacks on Firefighters as a Percentage of Incidents Attended

No.of Firework Incidents Physical Missile thrown or Aggressive Verbal District / Station Attended Assault Thrown projected Stoning Behaviour Abuse Total Percentage Bradford District Bradford 2333 2 2 4 4 4 16 0.69% FWG 1592 2 3 1 1 7 0.44% Idle 754 1 1 0.13% Keighley 858 1 1 2 0.23% Odsal 1530 1 1 0.07% Shipley 678 1 1 Districtx Total 83561107 0 5 1 3 8 6 6 1 28 2 0.34% 0.18% CalderdaleIllingworth District 432 2 2 2 6 1.39% CalderdaleDistrict District Total CFS 2675 0 3 0 2 011 6 11 0.41% BrighouseKirklees District 491 2 2 0.41% Halifa Kirklees District CFS 1 1 2 Batley 604 1 10.17% Cleckheaton 518 1 1 0.19% District Total 5079 2 1 0 1 0 0 4 0.08% Leeds District Leeds 2393 1 1 1 3 0.13% Gipton 2295 1 1 2 0.09% Hunslet 1704 3 1 1 5 0.29% District Total 11606 1 4 1 2 2 0 10 0.09% Wakefield District Knottingley 334 2 2 0.60% Ossett 476 1 1 0.21% The tableSouth summarises Elmsall the events re 317ported by firefighters and CFS staff. For clarification, 'stoning 1' covers any thrown 1 object identified 0.32% as a stone; 'firework' covers fireworks thrown orDistrict launched; Total and 'missile' covers 4433 any other 0 object used 1 as a projectile. 0 2 1 0 4 0.09% Where stations have not reported any incidents of violence to staff, they have not been shown within the table. However, they still contribute to the number of incidents Totals 32353 3 14 4 15 9 12 57 0.18% attended figures.

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In the seven months of 2009/10, there have been 57 incidents of violence reported by West Yorkshire FRS staff, which is an average of 8.1 per month, indicating a reduction of approximately 23.58% on the number of incidents reported for 2008/9 (127 for the full year, at an average of approximately 10.6 per month). To put the figures into perspective, the previous table shows the number of incidents in which firefighters were subject to violence as a percentage of attendance, by station and by district. Some smaller stations appear to suffer a relatively high percentage of attacks, but this is largely due to the smaller number of incidents attended from such stations. However, there is a danger that the frequency and severity of the 57 attacks out of 32353 attendances may seem insignificant when considering these very small percentages (0.18% overall). Although the number of attacks on firefighters has reduced, the Chief Fire Officer has re- emphasised that one attack is one too many and that every assistance and encouragement will be given to the police to bring offenders to court. Work is continuing with a variety of agencies from the police and district councils to community groups and youth leaders to address these issues.

District Actions to Address Violence

Districts are taking the following actions:

Bradford – Excellent community engagement has been ongoing with the Bradford District, and strong links have been forged with the Neighbourhood Policing Team (NPTs). Fire crews and CFS staff continue to communicate with youths in the local mosques, and also attend community events in the area. Further initiatives have included a BD3 community day held at Bradford Fire Station, organised football tournaments and a number of recruitment awareness days. All have proved to be a great success and have undoubtedly assisted in the District’s attempt to drive down occurrences of violence to staff.

Unfortunately, violence against our staff in the Bradford area increased slightly in the late summer period of 2009. However, following productive discussions with community leaders and further bonfire initiatives across the District, attacks during the early autumn period have been negligible. Work continues within a number of schools where individuals and target years have received joint awareness training from the Bradford Arson Task Force and Police NPT.

Close working with the Police Neighbourhood Policing Teams at station level is showing benefits, and a significant reduction in violence has been noted, but efforts will be continued to eradicate it completely.

Calderdale – Young Firefighter scheme has been running at Halifax Fire Station for some time with the potential to expand into other areas within Calderdale. A firefighter is also carrying out some excellent work at Ovenden boxing club, in an area where we have peviously had problems with violence towards staff.

The newly appointed arson task force manager, a retired Calderdale Police Sergeant, is making some very valuable links within the police service.

Calderdale operates a zero tolerance towards violence towards staff issues, this has led to more incidents being recorded by fire crews and fire and rescue staff. Calderdale District staff and the Arson Task Force team work with police to reduce the number of incidents of fire and possible confrontation. Assistant District Manager for Operations and Training

Performance Management Report Page 28 of 31

attends a fortnightly meeting chaired by a Superintendent at Halifax Police Station, which is also attended by Inspectors from the four Neighbourhood Policing Teams (NPTs). Any incidents of violence to staff are discussed at this meeting, it is also raised as a standing agenda item at district management meetings; introduced daily electronic recording system which is monitored by district personnel. All watches have also had the procedure (in relation to recording such incidents) confirmed whilst attending watch input days at Halifax Station.

On a Friday evening the duty Police inspector contacts Illingworth Fire Station with a direct contact number from an officer at Halifax Police station for use over the weekend, this number is also passed to Halifax Fire Station. This allows crews on the incident ground to speak to a Police officer who can mobilise resources to deal with any incidents, or violence towards staff issues, which may occur.

Kirklees - Youth Firefighter Scheme being delivered at Huddersfield. Ongoing engagement with the public through community work and liaison with local faith and community groups working closely at local level with NPTs and Neighbourhood Management Groups. Community engagement events being planned leading into summer period including a midnight youth football tournament and a community cricket gala. There is a specific agenda item for monthly District Management Meetings to discuss any occurrences with follow up actions. Awareness training has being delivered to station personnel. We are a partner agency in the Police ASBO Challenge initiative, supporting the police by providing education and awareness. Arson Task Force is now established and is working closely with other district partners to reduce the number of fire related incidents and possible confrontation.

'Dewsbury station staff continue to support operational policy in terms of ensuring FF safety both when attending incidents and on more routine working within the community. In addition to this Dewsbury maintains close links with the NPT Teams in terms of identifying areas of concern within Dewsbury Station area and ensuring that watches are briefed on any intelligence gathered. The Neighbourhood Management team meetings that take place at Dewsbury are avenues to further feed in reports on areas to avoid and indeed areas where we can, with sustained co-operation from other organisations, work to the betterment of the community by specifically targeted events that help to reduce the incidence of Anti Social Behaviour which has been identified as a factor in subsequent violent behaviour. One of these recent events is the ASB Challenge project which has run over the last 6 weeks.

The incident involving a member of our CFS staff is still being investigated by the police. Our employee has now returned to work, although currently on modified hours with the intention to return fully in the near future.

Leeds - Engaging with the public through community work; good links with the police and Youth Offending Teams; Young Firefighter courses at Gipton and Rothwell. Encouraging the reporting of incidents and vigilant use of 'silent witness' cameras; now forging closer links with Neighbourhood Policing Teams (NPTs).

Additional links have been made with CCTV operators for the district. When mobilised to incidents certain stations can now contact CCTV operators directly and request the appliances to be monitored in and around known "hot spots". This initiative has been publicised in the local press to warn offenders that they are likely to be caught on camera and subsequently prosecuted.

All Leeds District Station managers have been encouraged to form direct links with Neighbourhood Policing Teams, multiple “Operation Champions” have been and continue to be completed throughout the district year on year. The volume of work continually completed in community engagement and education by Community Safety Staff and Operational

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Personnel has begun to pay dividends. The instances of violent acts committed against Fire Authority staff within the Leeds District has fallen to an impressive low, this trend reflects the commitment and groundwork that has been applied throughout the district by all personnel.

Wakefield – Reporting directly to the council through the Strategic Intelligence Report and liaising with the police through the weekly tasking meeting and Neighbourhood Policing Teams (NPTs); raised as a standing agenda item at district management meetings with specific action plan to follow up. The arson reduction team engage quickly in addition to the above where an attack does take place to liaise with NPT, schools and attending fire crews.

Recent meetings have taken place with the head of youth services and members of the youth services team, to explore and develop joint work streams. One area being developed is to provide engagement opportunities in the event of an attack over and above the work done at Young Firefighter level.

Recent work progressing with Wakefield District Housing, NPT and Wakefield Metropolitan District Council in the South Hiendley area following repeated incidences of ASB. This work is ongoing with the Arson reduction Team leading WYFRS work in this area.

Operations Department - Representatives from the Fire Investigation Team, Arson Task Force and Station Command recently visited Merseyside Fire & Rescue Service to evaluate the policies and procedures they had put in place to reduce violence at work. Merseyside have embedded their violence at work reduction strategy into their Threat Response Team, a team that also deals with anti-social fires and the arson reduction strategy. The main focus of their work is education and inclusion with Fire Service and Police Liaison Officers in the secondary education establishments in the areas of greatest risk. Those Liaison Officers engage with the students, presenting positive role models and educating them on the impact and consequences of deliberate fire setting and attacks on firefighters. The rationale being, driving down the number of anti-social fires will reduce the exposure to firefighters and reduce the risk of attack. Having given the education and support, the Fire & Rescue Service in partnership with the Police have a zero tolerance to violence at work and will proactively pursue and prosecute offenders. Each of these strategies is being evaluated by the Operations Department in liaison with Community Safety in order to establish best practice for the West Yorkshire Fire & Rescue Service.

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West Yorkshire Fire and Rescue Service Oakroyd Hall Birkenshaw BD11 2DY

www.westyorksfire.gov.uk

WEST YORKSHIRE ITEM NO FIRE AND RESCUE AUTHORITY 18 DECEMBER AUTHORITY 2009

REPORT OF: DIRECTOR OF CORPORATE RESOURCES (MONITORING OFFICER)

PURPOSE OF REPORT: TO CONSIDER THE RECOMMENDATIONS OF THE STANDARDS COMMITTEE WITH REGARD TO A PROPOSAL TO INCLUDE THE PROVISION FOR PUBLIC SPEAKING IN THE AUTHORITY’S CONSTITUTION DOCUMENT

RECOMMENDATION: THAT THE AUTHORITY DETERMINES ITS POSITION WITH REGARD TO A PROVISION FOR PUBLIC SPEAKING AT AUTHORITY MEETINGS

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: NIL

ACCESS CONTACT OFFICER: N HOUSEMAN, 01274 655710 [email protected]

BACKGROUND PAPERS OPEN TO INSPECTION:

Summary

The Authority has a written Constitution designed to set out and regulate in a transparent manner the way in which the Authority operates and makes decisions. This report considers the recommendations of the Standards Committee with regard to the proposal for change as debated at the Annual meeting of the Authority which would allow for the provision of public speaking at Authority meetings.

1. BACKGROUND

1.1 As requested by the full Authority (Min no. 20(iii) refers), Members of the Standards Committee considered a proposed amendment to the Authority’s Constitution document at a meeting held on 22 October 2009 regarding the inclusion of a provision for public speaking at meetings of the Authority.

1.2 The Standards Committee resolved as follows;

(i) That the report be noted;

(ii) That the full Authority be recommended to approve the introduction of a public speaking policy at its meeting on 18 December 2009 in accordance with the proposal, as amended, at the Annual Meeting of the Authority held on 19 June and subject to the following;

• Public speaking to be permitted at meetings of the full Authority only • Notice of questions from members of the public to be received in writing by the Director of Corporate Resources a minimum 3 working days before the date of the meeting • All questions to be relevant to the remit of the Authority • Each question to be limited to 3 minutes • Question time to be limited to 15 minutes • Written responses to be provided within 10 working days of the meeting • Members of the public should not include employees of the Authority and other elected politicians and;

(iii) That the full Authority be recommended to invite the Standards Committee to review the public speaking policy at its meeting in March 2011 prior to the submission of a full monitoring report to the June 2011 Annual meeting of the Authority.

1.3 Member are asked to consider the recommendations of the Standards Committee and note that the introduction of a public speaking policy would be subject to specified provisions as outlined at the 19 June 2009 meeting and as detailed below;

“Relevant Issues and Questions and Specified Restrictions”:

Questions may be asked about any relevant issue but are not permitted and/or may be disallowed for the following reasons:

(1) Questions are not permitted at AGM and Budget Meetings or between publication of election dates and the date of the election (2) Questions are not permitted if the matter involves confidential information or information which is exempt from public disclosure as determined by the Monitoring Officer

(3) Questions are not permitted if the matter involves prosecutions or litigation involving the Authority or if they involve matters subject to investigation and adjudication under the Member Code of Conduct or involve disciplinary matters concerning employees. (4) Questions are not permitted if the Chair determines the question to be of a personal nature, defamatory, offensive, frivolous, repetitive or vexatious

WYFRA FULL 18 DECEMBER 2009 ITEM NO AUTHORITY

REPORT OF: DIRECTOR OF CORPORATE RESOURCES

PURPOSE OF REPORT: TO PROPOSE THE ADOPTION OF MEMBER CHAMPION PROTOCOL

RECOMMENDATION: THAT THE AUTHORITY ADOPT A MEMBER CHAMPION PROTOCOL

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

ACCESS CONTACT OFFICER: MG Barnes 01274 655710

BACKGROUND PAPERS OPEN TO INSPECTION: None

SUMMARY

Summary: This report responds to Member requests for clarification over the expectations placed on Member Champions by recommending the adoption of a formal protocol which provides guidance on the parameters of the role and how it should be discharged and what level of officer support and liaison should be provided.

1 BACKGROUND

1.1 Whilst the Authority has already recognised the value in having named Members to act as Champions for certain services and functions the absence of any detailed written role guidance has led to Members expressing an element of concern over the lack of clarity surrounding the role and expectations of Member Champions. The purpose of this report is to introduce for discussion and possible adoption a Protocol for Member Champions which will provide guidance to both Members and Officers on the role of Member Champions and how both should seek to interact in order to maximise the benefits of appointing Member Champions and to ensure appropriate corporate recognition for the role.

1.2 Whilst there is no legal obligation to appoint Member Champions their appointment can assist the authority in delivering its core objectives and in some instances it can be beneficial to the promotion of social inclusion and community engagement. The adoption of a formal written protocol governing the arrangements for Member Champions will lessen the risk of inefficiency and maximise the opportunity for more effective contributions. The attached draft Protocol (which provides a focussed role for Member Champions and sets out the support they can expect to receive) is submitted for discussion and possible adoption by the Authority.

(DRAFT)

West Yorkshire Fire and Rescue Authority - Member Champion Protocol

1 Introduction / Appointment

1 Member Champions are elected Members appointed by the Authority itself to act as an advocate or spokesperson for a particular theme or area of the Authority’s business activities and to provide a focus on that theme or area of activity both in relation to the Authority itself and its local governance partners.

2 Member Champions as a concept have developed as a result of legislation and regulatory good governance guidance from such bodies as the Audit Commission seeking to both enhance and focus Member involvement in the strategic direction of the Authority and its effective overall governance and management.

3 The Authority at its annual meeting will identify or confirm themes or areas to be championed and will appoint willing named Members to Champion a specific theme/area. Members will be appointed for a period of one year ie to the date of the next annual meeting but may be replaced earlier or serve for longer than one year. In exceptional circumstances the Authority may appoint more than one Champion per theme/area.

2 The Member Champion Role and Parameters:

1 The Authority has identified the following general responsibilities for Member Champions:

2 To exert influence on the decision making process within the Authority

3 To exert influence on relevant external partners

4 To act as a catalyst for change

5 To promote democracy and to act as a channel for information and consultation with relevant communities

6 To work with Officers and other Members as appropriate in order to assist the Authority in the development delivery and maintenance of efficient effective and relevant services and policies.

7 All Member Champions must act reasonably and aim to work effectively within political management and other working arrangements adopted by the Authority.

8 A Member Champion will work only within their programme of activity agreed with the relevant lead officer and it is recognised that a Member champion cannot make executive decisions and nor must they commit the Authority in any way or manner that could be interpreted as being contrary to approved policies and practices. They are not authorised to commit Officer time beyond that agreed by the lead officer nor in any manner which prejudices the prioritisation of work by Officers as determined by management.

9 In appropriate cases the Member Champion may be nominated by the Authority to act as its representative on relevant external bodies.

10 The Member Champion will seek to inform and assist senior management by attending relevant officer meetings, by asking questions or raising issues or by making other contributions to the development of policies and procedures.

11 The Member Champion will liaise with other Member Champions as necessary and keep other Members up to date with their activities as appropriate.

12 Member Champions may request the opportunity to make specific contributions to Officer report’s to the Authority or its Committee’s – such contributions will be clearly identified as those of the Member Champion

3 Authority and Officer Support:

1 The Authority recognises that in empowering the Member to discharge a Champion role it is appropriate to put in place such arrangements as it thinks appropriate to support the Member in this role. This will include the following:

2 For every Member Champion the Chief Executive / Chief Fire Officer will designate a Lead Officer who must be a Director / Statutory Officer who shall liaise with the Member Champion and provide the Champion with such support and mentoring as the lead officer deems necessary to enable the Champion to discharge his/her role effectively within the agreed parameters including the provision of any necessary administrative support. At the commencement of each period of appointment the Lead Officer will identify in consultation with the Member Champion a forward programme of activity including the scheduling of meetings in respect of which the Member will be invited to make a contribution. This work programme must reflect the Authority’s overall priorities.

3 The Member Champion will be provided by officers with access to information which is necessary to enable the Champion to discharge their role.

4 The Authority will take steps to promote understanding of the Member Champion role within the Authority.

4 Accountability:

1 Each Member Champion shall (with assistance as necessary from the relevant Lead Officer) prepare an annual report for submission to the annual meeting of the Authority setting out the actions taken during the course of their period of appointment and how these have contributed to the development of policies and practices and the achievement of Authority priorities.

2 A Member Champion may be questioned by another Member of the Authority on their designated area on activity at Authority or relevant Committee meetings.

Schedule of Current Member Champion Appointments:

Theme Member Term of Office

Risk Management Member Champion Cllr Booth

Since my last update the Fire Authority has approved the latest version of its risk matrix at the Audit Committee meeting on the 23 Oct 2009. It has also tested its business continuity plans in exercise “Raindrop” which tested our flood planning assumptions. The exercise will be used to enhance our business continuity plans and any shortfalls highlighted in the exercise will be used to update our plans.

Our business continuity plans have been also tested for real this year with the Swine Flue outbreak. It was reassuring that the Flu plans work well and the Fire Service continued to operate normally during the first wave of the outbreak and we are fully prepared for the effects of the second wave just this happen during the winter months.

The risk management group continues to review and monitor the risks which the Authority has identity in its risk matrix on a regular basis. As a further control measure the Kirklees audit team will also being carrying an audit to ensure that the systems in place are fit for purpose. The outcome of this will be reported to the Audit Committee in due course.

I therefore look forward to continuing to support and work with the Risk Management Strategy Group as their member champion.

Performance Management and Improvement Member Champion Cllr Khan

Since my last update the Fire Authority has undergone its first inspection under the new Comprehensive Area Assessment (CAA) process. The results of this first inspection is very encouraging given the much harder test that this new process represents over the previous CPA process. The report on the CAA process will be reported to the full authority on the 18 Dec 2009 and it is pleasing to see the West Yorkshire continues to be a top performer.

Greater scrutiny by the Audit Committee continues and the performance management report as also been amended to ensure that members continue to receive information on the performance of the Authority to enable them to robustly challenge officers. The improvement plans continues to be used to monitor all issues which have been pick up by any external review team and is well received by the CAA audit teams

I therefore look forward in continuing to support the group as their member champion . Committee Best Value Member Champion Cllr Castle

The Best Value programme for this year has been suspended following the introduction of the five major reviews as part of the IRMP process. It is pleasing to note that all five reviews are progressing well with three already completed these are Retained Duty system, Duty System and Managerial Command and Capacity review. All of which are being reported to today’s meeting of the Full Authority Committee meeting. Significant progress is also being made on the other two reviews Emergency Response and the Specialist Resources Reviews which are still on track to be completed by 1St April 2010.

Updates on the process of all of the above are reported to the Finance and Resources Committee on a regular basis.

I therefore look forward to working with the review team on these next reviews.

Environmental Member Champion Cllr Hardwick

Since my last update energy usage across all our fire stations and departments continue to be monitored on a weekly basis with District Manager now able to compare energy usage across their respective fire stations. A 10% reduction for Electricity, Gas and Water has been applied to the 2009/10 respective budgets

Carbon Trust survey’s reports have been undertaken at the 5 highest usages fire stations and the Management Board have authorised all fire stations to be surveyed by Carbon Trust accredited consultants. This will help in moving the green agenda further and I hope to be able to update on some of the action that will be needed as part of these surveys as soon as possible.

A number of sub groups have been set up which I reported on previously and these groups continue to explore the following areas: a) Different forms of fuels for vehicles and alternative forms of power generation b) Video conferencing and home working facilities c) Introduction of waste recycling at fire stations d) Power saving systems for computer equipment

Clothing recycling bins have also been placed across most of our fire stations which will also see financial benefits to the fire fighters charity as an additional benefit.

The outcomes of these sub-working groups will be reported to the Finance and Resources committee in due course and I therefore look forward to continuing to support and assist the Environmental Working Group in their important work.

Councillor Finnigan’s Report – Information Governance

I was appointed as Member Champion for Information Governance in June 2009 to highlight the importance of and the Authority’s commitment to this area of work. Following a formal briefing session in September 2009 I have now become active in this role and fully acknowledge the work to date.

At the Management Board meeting of December 2008 it was acknowledged that the area of Information Governance (IG) needed to be addressed following high profile cases regarding data losses and poor information sharing practices. As such, approval was given to the introduction of an Information Governance Framework and the creation of the strategic Information Governance Group to implement and maintain information governance effectively and consistently across the Authority. This Group met for the first time in February 2009 and appointed Information Champions from each department to form the operational Corporate Information Management Group. An IG Improvement Plan has been formulated and approved to manage the actions required for each standard of the framework.

Management Board also accepted the need to introduce a structured approach towards information security based on international best practice. The implementation of an Information Security Management System (ISMS) aligned to the international standard ISO/IEC 27001 was also approved at the Board meeting of December 2008.

Significant progress has been made towards meeting the requirements of both the Information Governance Framework and the ISMS within a very short period of time aided by collaboration work with partners across West Yorkshire. The approach has been well structured with clear direction that was acknowledged during the recent Customer Service Excellence Audit with the award of ‘Compliance Plus’ demonstrating that the Authority’s Information Management arrangements are over and above the required standard.

I therefore look forward in continuing to support the working group in this important area of activity.

Report from Cllr. Naveeda Ikram – Authority Champion for Learning and Development

Throughout 2009 the service has moved forward in implementing its Training and Development Strategy 2008-11. In the Integrated Personal Development System (IPDS) ‘Health Check’ carried out on behalf of the Fire Service College, Centre for Leadership in April 2009, the strategy was identified as being ‘ambitious and well thought-out’ and the learning and development provided by the service as being ‘comprehensive flexible and modern’.

An example of where the service has made good progress has been the introduction of the ‘High Potential Scheme’ which has resulted in two operational staff, 1 female and 1 male , being successful in selection onto the scheme and are now in development to make them eligible for senior roles within the service.

A second example has been a full review of the system for carrying out ‘Personal Development Reviews’ for all staff. Following extensive consultation the system has been streamlined and made more focussed on expected principles, practices and behaviours that underpin excellent performance. All staff will have a review with their line manager between November 2009 and February 2010.

Due to the retirement profile of the service in 2008/9, the Training and Development Section of the service has undertaken selection processes for over 400 operational applicants which has resulted in 107 Crew Managers, 62 Watch Managers, 14 Station Managers, 9 Group Managers, 1 Area Manager and 2 High Potential candidates being successful and placed into development over the year.

Equality and Diversity Progress – Councillor David Gray

Access to services for vulnerable people

Joint working with Community Relations and the Equality and Diversity Teams to identify where we can work together to improve the skills and knowledge of staff and better meet the needs of our diversity community.

Equality and diversity improvements

Recruitment – The number of women firefighters and BME firefighters/FRS continues on increase year on year we now have 59 women and 57 BME Grey book staff and 30 Green book staff

Progression – Women and BME operational staff have been targeted regarding the High Potential Scheme we have 1 woman on the scheme. 8 Women and 5 BME operational staff have been promoted to CM and WM levels

Corporate Equality Scheme 2008 – 2011 formal consultation has been completed and a progress report against the action plan will go to the next P&T Committee.

PRIDE Marches we attended 5 Pride events in all the districts over the summer with the Chief as a key note speaker at the Leeds event

Partnership working to improve outcomes - LAAs, LSPs, RMB

Kirklees Equality and Diversity Stakeholder Forum

WYFRS are active partners in the above group. The group involved community members representing the 6 strands of E&D and include the Law Society, voluntary organisation.

Initiatives completed to date include: Partnership with StopHateUK Signposting psychological support for victims of hate crime Consulting on the revised Equality Framework for Local Government

Equality and Diversity Statutory Agency Partnership

These are now in place in Kirklees, Leeds, Wakefield, Bradford and Calderdale to support work around equality and diversity in the LAAs

Equality Framework – West Yorkshire Fire and Rescue Service are leading on the creation of a bespoke version of the Local Authority Equality Framework. The final work will be launched at the Innovations Conference 7/8 December 2009

Benchmarking with other authorities

We have an ESLG Level 5 Gap analysis planned in January 2010 to identify the actions required to progress to the Excellence Level of the new Equality Framwork

Stonewall Workplace Equality Index www.stonewall.gov.uk

Progress to date:

2007 – 47th 2008 – 43rd 2009 – 39th

West Yorkshire Fire and Rescue Service’s Equality and Diversity Manager has been asked to deliver a presentation on our progress with Lesbian, Gay, Bisexual equality at the National Stonewall Conference in March 2010.

Equality and Diversity in Procurement

A presentation was delivered to members and lead officers on the importance of Equality and Diversity in procurement in November 2009-11-27

Equality and Diversity Intranet Site

The site has been redesigned to support all employees and provide links to key areas of the equality and diversity agenda

ITEM NO

WYFRA FULL AUTHORITY 18 DECEMBER 2009

REPORT OF: THE DIRECTOR OF CORPORATE RESOURCES

PURPOSE OF REPORT: TO PROVIDE AN UPDATE ON THE MEMBER CHAMPION APPOINTMENTS

RECOMMENDATION: THAT THE REPORT BE NOTED.

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

CONTACT OFFICER: NICOLA HOUSEMAN - 01274 655740

BACKGROUND PAPERS OPEN TO INSPECTION:

NIL

Summary

Since the adoption of Member champions, Members have received six-monthly reports giving an update on their specific area of responsibility.

1 BACKGROUND

1.1 The Authority has a number of Member champions appointed to diverse areas of the service as follows;

Function Member champion

Equality and Fairness Councillor David Gray Learning and Development Councillor Naveeda Ikram E-champion Councillor Bryan Smith (to 3.11.09) Best Value Councillor Ann Castle Performance & Improvement Councillor Mehboob Khan Risk Management Councillor Philip Booth Environment Councillor Tracey Hardwick Information Governance Councillor Robert Finnigan

2 INFORMATION

2.1 Reports from the Members champions are attached as an annex to this report.

2.2 The next update from the Authority’s Member Champions will be given at the 25 June 2010 meeting.

Appendix 1

Summary of Responses to Consultation on Specials Review

Issue Consultee Analysis Action Remarks

Insufficient Water Rescue Personnel Analysis supports Included as a Noted by F&R on technicians at Leeds Fire from Leeds fire recommendation proposal in 16.10.09 Station to provide a station final Specials resilient service Review Paper

Insufficient Water Rescue Wakefield Analysis of water Included as a Capability in Wakefield District rescue incidents proposal in Noted by F&R on District given the high level Manager supports relocation final Specials 16.10.09 of incidents of Water Rescue Review from Rothwell to Paper Wakefield

Suggestion that adaptation Lead Wildfire No negative impact Included as a Noted by F&R on of the BFU for use at Officer The new unit will be proposal in 16.10.09 Wildfire incidents would located to provide final Specials enhance moorland optimum response Review capability capability Paper

Concerns over the removal City of Further analysis Included as a Noted by F&R on of special appliance from Wakefield suggests that the proposal in 16.10.09 Featherstone F/S MDC Crime PRU at final Specials and Featherstone Review Community should remain but Paper Safety that the Prime Overview and Mover isn’t Scrutiny required. Also Committee Welfare Unit will be placed at Featherstone

Local Authority replied to Leeds City None required None No further action state they had no concerns Council

Kirklees MDC originally Kirklees MDC None required Proposal Awaiting replied to state they had no noted by confirmation from concerns. Further Committee KMDC that they are correspondence sought 16:10:09. now satisfied with reassurance that the Letter sent by the proposal. removal of Dewsbury’s DCFO to Prime Mover crews would provide more not affect Kirklees detail to residents. KMDC on reasons for this proposal.

Suggested that the Line Personnel Analysis by the Included in Noted by F&R on Rescue Capability at from Rawdon IRMP Team final Specials 16.10.09. Rawdon is maintained for Fire Station suggests that this Review 12 months after the would be prudent in Paper implementation of a the first year of the revised Technical Rescue new Technical capability Rescue Team

Problems in sustaining the The Fire Positive outcome Proposal to Noted by F&R on WM Fire Investigation Officers following Pilot amend duty 16.10.09. Team due to workload / Association Scheme system is duty system included in final Specials Review Paper

Concerns regarding FBU Analysis by the Movement of Noted by F&R on reduction in staffing IRMP Team HMU to 16.10.09. at Dewsbury and effect on suggests the low Ossett now mobilising IRU,HMU activity of the IRU included as a and HMU makes proposal in them a low risk, final Specials however it is Review possible to move Paper HMU to Ossett to reduce risk even further

Movement of Concerns over the training FBU Following further IRU support Noted by F&R on burden on redeploying analysis of the to Rothwell 16.10.09. Water Rescue to Wakefield training burden – Included as a propose move IRU proposal in support function to final Specials Rothwell. review Paper

Concerns over the FBU Some benefits were Agreed to Noted by F&R on ridership on the CARP identified in crew CARP 16.10.09. increasing standard at 6 and staffing to 6 WrTs at 4 on CARP stations as standard staffing

The LRF endorsed Local The LRF the proposals and Flood Rescue Capability Resilience None required partners to supported the Forum draft a letter WYFRS to endorse commitment to the RIEP bid provide a flood Rescue Response capability

The working arrangements FBU After further Creation of a Ongoing of FDS officers under new analysis it was detailed 5 week rota possible to provide guidance more detailed note that can guidance on how be agreed the rota would with the FBU function

Concerns over terms, FBU Further DHR has Ongoing conditions and work is required to commenced remuneration of personnel assess suitable formal at the new Tech Rescue terms, conditions negotiations station and remuneration with the FBU

Appendix 2

List of Consultees for Review of Specialist Appliances and Specialist Resources

Leeds City Council City of Bradford Metropolitan District Council Calderdale Metropolitan District Council Kirklees Metropolitan District Council City of Wakefield Metropolitan District Council Fire Brigades Union Fire Officers Association Unison Operational Personnel of WYFRS Regional partner FRS’s (NYFRS, SYFRS, HFRS) Local Resilience Forum (see below)

Members of the Local Resilience Forum for West Yorkshire; • West Yorkshire Police • CTU, West Yorkshire Police • Command Team Secretariat, West Yorkshire Police • West Yorkshire Fire and Rescue • Yorkshire Ambulance Service • British Transport Police • Health Protection Agency • Kirklees MDC • Calderdale MDC • City of Wakefield MDC • City of Bradford MDC • Leeds City Council • NHS Leeds • Strategic Health Authority • British Telecom • Yorkshire Electricity • Government Office Yorkshire & Humber • Met Office • Yorkshire Water • District Primary Care Trusts • United Utilities • Highways Agency • Military Liaison • Leeds Bradford International Airport • Environment Agency • Northern Gas Network

Appendix 3 Existing Disposition of Specialist Appliances

Hunslet Cleckheaton

MRU MRU

BAU

USAR

Rothwell Shipley

Dewsbury FCU CU Mirfield

WYs HMU Ossett MSU

IRU DIM WSU

HLU MDU

Stanningley Featherstone

HVPx2 HLU PRU

ISU BFU FMU ISU

Appendix 4 Proposed Dispositions of Specialist Appliances

TECHNICAL RESCUE HAZARDOUS MATERIALS WATER PETRO-CHEMICAL

Cleckheaton Dewsbury Stanningley Hunslet

Odsal Mirfield Batley Castleford

LOGISTICS WATER 5 COMMAND COMMAND RESERVE Appendix 5 Recommendations From the Specials Review

Recommendation 1

Fully mainstream the Governments New Dimensions Detection Identification and Monitoring resources at Dewsbury into WYFRS capability by also utilising the Unit for all standard, conventional decontamination purposes at incidents in West Yorkshire. Develop Ossett Fire Station as a Hazardous Materials support station to Dewsbury and transfer the Hazardous Materials Unit (HMU) from Dewsbury to Ossett and reduce the staff establishment at Dewsbury by removing one Crew Manager and two Fire fighters from each Watch. Develop the HMU at Ossett to become a specialised capability for the decontamination of firefighters in PPE or when Gas Tight Suits are damaged during incidents, on the very rare occasions this may be necessary. Due to its very low level of activity dual crew the HMU with the appliance at Ossett.

Outcome = improved capability at reduced cost

Recommendation 2

Fully mainstream the Governments USAR resources at Cleckheaton into WYFRS technical rescue capability and procure a Technical Rescue Vehicle (TRV) and associated equipment suitable for swift deployment to technical rescue incidents within West Yorkshire. Withdraw both MRU's from operational service and utilise USAR trained staff and resources for all incidents within West Yorkshire requiring technical rescue assistance and expertise. Create the post of Technical Rescue and USAR logistics support at FSHQ to ensure the effective maintenance of equipment. Centralise the future provision of Level 2 line rescue capability with the Technical Rescue Team at Cleckheaton and discontinue the existing Level 2 line rescue provision at Elland and Pontefract. A further Line Rescue capability exists at Rawdon fire station and this will remain in place subject to the successful introduction of the Level 2 line rescue capability and be reviewed after 12 months.

Outcome = improved capability and resilience

Recommendation 3

Create a post of a Station Manager (New Dimension Lead) to ensure that ND assets are integrated into WYFRS, that requisite standards are maintained and that the quality of service provided through the national contract is of the highest standard.

Outcome = improved quality assurance, managerial control and coordination

Recommendation 4

Create a specialist Petrochemical Firefighting Station at Hunslet and redeploy the prime mover appliance based at Featherstone to Hunslet together with the demountable unit foam resources based at Stanningley and Rothwell. Dual- crew the redeployed prime mover at Hunslet with a pumping appliance and reduce the staff establishment by removing one Crew Manager and two Fire fighters from each Watch. Also research the potential for introducing an accredited Foam Firefighting qualification for crews at Hunslet.

Outcome = improved capability at reduced cost with enhanced coordination

6 Recommendation 5

Centralise the logistics function at Odsal fire station redeploying the prime mover appliance based at Cleckheaton to Odsal. Dual-crew the redeployed prime mover at Odsal with a pumping appliance. Convert the existing Breathing Apparatus Unit (BAU) at Hunslet and locate this at Odsal to also provide a multi agency liaison capability and for it to become a dual-purpose unit. Adapt one of the existing Incident Support Units (ISU) to provide a breathing apparatus, fire kit, chemical protective clothing, cordon management and other associated equipment and withdraw one from operational service. Adapt the existing Major Salvage Unit (MSU) to create a combined salvage and environmental protection unit and locate this unit at Odsal.

Outcome = improved capability at reduced cost

Recommendation 6

Centralise the capability for delivery and removal of large quantities of water at Stanningley Fire Station (supported by Mirfield) by continuing the existing dual-crewing arrangements for the prime mover appliances and deployment of the Hose Laying Unit and High Volume Pump resources. This station will focus solely upon the delivery and removal of large quantities of water (not water rescue).

Outcome = improved capability / coordination

Recommendation 7

Introduce a specialist Fire Investigation Team to provide virtually continuous availability, with four Watch Managers working a flexible duty system.

Outcome = improved capability and efficiency

Recommendation 8

Enhance WYFRS Flood Response capability through the procurement of sufficient equipment and associated training to ensure we can respond to future wide area flooding incidents as part of a regional and/or national deployment of flood response assets if necessary. Specifically, provide a mix of powered boats and other craft based at Leeds, Brighouse, Bingley and Wakefield water rescue stations and enhance the water rescue capability at Leeds Fire station by providing additional Water Rescue technicians. Remove the Water Rescue capability at Rothwell and redeploy these assets to Wakefield Fire Station to ensure an optimum distribution of Water Rescue/Flood response. Introduce a suitably qualified Watch Manager (A) to co-ordinate the procurement of suitable craft and equipment, training of crews, liaison with partners in other agencies and creation of suitable Operational Procedures for Flood Rescue and Response. Remove responsibility for IRU support from Wakefield and utilise Rothwell station. Provide a Flood Support Unit at Fire Service Headquarters (converted from the Water Support Unit at Ossett) with equipment to support any major flooding event.

Outcome = improved capability and improved coordination.

7 Recommendation 9.

Provide an improved welfare capability for protracted incidents in West Yorkshire by two purpose built vehicles with on-board toilet and hygiene facilities (location to be determined). The Personnel Refreshment Unit (PRU) based at Featherstone to remain in operational service as an additional resource for significant events but without the Prime Mover being immediately available.

Outcome = improved capability and improved conditions for staff

Recommendation 10.

Provide the main Incident Command and Control facility in West Yorkshire by the provision of a new Command Unit based at Batley with a spare at Castleford.

8 Appendix 6 Specialist Appliances Glossary

The term ‘special appliance’ is used to describe a wide range of vehicles which provide a specialist function and/or serve as the delivery module for a range of specialist equipment. These vehicles are used to support the immediate emergency response deployment of pumping appliances.

WYFRS Resources

Aerial Appliance (ALP) An appliance which is principally designed to allow for rescue from high buildings and to allow fire-fighters to attack fires using water jets at high level. BA Unit (BAU) A demountable unit used to provide command support to protracted breathing apparatus operations. Bulk Foam Unit (BFU) A demountable unit which provides a logistical stock of foam concentrate via a number of large containers, together with associated equipment for its deployment. Command Unit (CU) A fixed chassis vehicle used as a command and administrative base for more complex incidents. Command Pod A demountable unit used as a reserve command and administration facility. Combined Aerial Rescue A hybrid appliance with the dual function allowing it to be utilised as Appliance (CARP) a rescue pump and or a high reach appliance. Demountable Unit An interchangeable container (pod) which is loaded onto the rear of a prime mover appliance using multi-lift system. Foam Making Unit (FMU) A demountable unit which provides a facility to produce foam solution, together with associated equipment for its deployment. Flood support Unit (FSU) A demountable unit which will provide a stock of equipment for flooding incidents Hazmat Unit (HMU) A demountable unit which provides a decontamination capability and carries a logistical stock of chemical protective clothing for exchange at incidents. Hose Laying Unit (HLU) A demountable unit which carries large quantities of hose to transport water over long distances, used at incidents where firefighting water is scarce. Incident Support Unit (ISU) A demountable unit, predominantly used for logistical purposes, which carries stocks of breathing apparatus cylinders, generators and lighting equipment. Major Rescue Unit (MRU) A demountable unit which carries heavy rescue equipment for incidents such as collapsed structures and major transport incidents. Major Salvage Unit (MSU) A demountable unit which carries damage prevention equipment used to mitigate the impact of fire-fighting operations upon premises. Prime Mover (PM) A fixed chassis vehicle which uses a multi-lift demountable body system to load a variety of demountable units onto the rear of the appliance. Personnel Refreshment Unit A demountable unit which provides basic refreshment facilities (tea, (PRU) coffee) and a covered seating area.

Technical Rescue Vehicle A purpose built vehicle providing a heavy rescue and line capability (TRV) Water Carrying Unit (WCU) A demountable unit which will provide water for moorland incidents

Water Support Unit (WSU) A demountable unit which provides logistical equipment for both water rescue and moorland fire-fighting operations.

Specialist Functions Performed by WYFRS Crews

Level 2 Line Rescue Designated crews which have received a higher level of training in the use of line rescue equipment which enables them to utilise rope rescue equipment to effect rescues from height or below ground level. Level 2 Water Rescue Designated crews which have received a higher level of training in water rescue techniques, which enables them to perform rescues from fast flowing and/or deep water.

New Dimension Resources

These resources are appliances and equipment provided by Communities and Local Government (CLG) to specifically enhance resilience against the threat of terrorism and environmental changes. They comprise of Urban Search and Rescue (USAR) vehicles and equipment, a Detection Identification and Monitoring (DIM) vehicle and associated equipment and & a High Volume Pumping (HVP) capability).

Detection Identification and A medium size van which serves as a mobile laboratory and is Monitoring (DIM) Unit provided with equipment which candetect, identify and monitor chemical, biological and radiological contaminants. High Volume Pumps (HVP) High capacity pumps complete with a hose laying capability, which can be used to relay large quantities of water. Incident Response Unit Incident Response Unit which provides a mass decontamination (IRU) capability via a number of large portable showers and ancillary equipment. Urban Search and Rescue Urban Search and Rescue resources include three prime movers (USAR) and five modular demountable units containing a comprehensive range of modern technical rescue equipment.

10 11

ITEM No. Fire & Rescue 18th December WYFRA Authority 2009

REPORT OF: DIRECTOR OF OPERATIONS

PURPOSE OF REPORT: IRMP 2009/2012 - THE OUTCOMES OF THE FIVE REVIEW STREAMS

RECOMMENDATIONS: THAT THE FIRE AND RESCUE AUTHORITY:

1) NOTE THE OUTCOME OF THE REVIEW OF DUTY SYSTEMS (section 8.0) AND THE REVIEW OF THE RETAINED DUTY SYSTEM (section 5.0), BOTH APPROVED BY THE PERSONNEL AND TRAINING COMMITTEE ON 25TH SEPTEMBER 2009. 2) APPROVE THE RECOMMENDATIONS FROM THE REVIEW OF MANAGERIAL COMMAND AND CAPACITY (section 4.0) 3) APPROVE THE RECOMMENDATIONS FROM THE REVIEW OF SPECIALIST APPLIANCES AND SPECIALIST RECUE RESOURCES (section 7.0) 4) APPROVE THE FIVE STAGE IMPLEMENTATION PROCESS FOR REVISING EMERGENCY COVER ARRANGEMENTS AS PROPOSED BY THE REVIEW OF EMERGENCY RESPONSE PROVISION (section 6.0)

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

ACCESS CONTACT OFFICER: IRMP Programme Manager

BACKGROUND PAPERS. 1. WYFRS Integrated Risk Management Plan and Action Plan (2009-2012) 2. Fire Research Series Document “Review of Fire and Rescue Service Response Times” (FRS 1/2009)

OPEN TO INSPECTION: Fire Service Headquarters

SUMMARY:

This report provides a summary of the findings of the five strategic reviews undertaken as part of the 2009-2012 Integrated Risk Management Plan (IRMP). The outcomes of the Review of Duty Systems and the Review of the Retained Duty System (RDS) have already been approved by the Personnel and Training Committee on the 25th September 2009; summaries of these reviews are provided for Members information. The outcomes from the Review of Managerial Command and Capacity, the Review of Specialist Appliances and Specialist Rescue Resources and the Review of Emergency Response Provision are brought before the Fire and Rescue Authority for approval of recommendations. The Review of Managerial Command and Capacity has identified a number of

Cont / …..

posts that are critical to the ongoing development of West Yorkshire Fire and Rescue Service to reduce risk, improve performance and implement changes that will be crucial to delivering efficiency improvements in the future. The Review of Specialist Appliances and Specialist Rescue Resources has been subject to consultation and includes a number of significant changes to enhance the emergency response capability of West Yorkshire Fire and Rescue Service (WYFRS) and at the same time deliver significant efficiencies, primarily through changes to the crewing arrangements of the vehicles. The Review of Emergency Response provision has resulted in proposals to improve performance and also a long term plan to develop a more sophisticated risk based approach to emergency response which will form a key element of the Fire and Rescue Authority’s longer term financial strategy. Overall, the five reviews represent a unique opportunity to invest in critical areas of service to improve performance and at the same time deliver significant recurring annual efficiencies.

1. BACKGROUND

1.1. The five strategic reviews instigated as part of the IRMP 2009-2012 have now been completed. Progress against these reviews has been reported on a regular basis to the Finance and Resources Committee, to the Executive Committee on the 10th July 2009 and also to the Fire and Rescue Authority on 4th September 2009. These reviews examined in depth the following areas;

• Retained Duty System (RDS) • The Whole Time Duty System • Emergency Response Provision • Specialist Appliances, Equipment and Skills • Managerial and Command Capacity

1.2. The outcomes of the five reviews, when considered together, represent a unique opportunity to address significant organisational and community risks, improve firefighter safety, improve performance and at the same time deliver major financial efficiencies.

2. INFORMATION

2.1. The analysis of performance undertaken within each of the five review streams has identified that certain areas of service delivery require significant investment and other areas can deliver major efficiencies. The RDS and Command and Capacity Reviews represent an increase in expenditure whilst the Duty System Review and Review of Specialist Appliances produce the efficiencies. The Emergency Response Review, whilst initially not having any financial implications, will provide the basis for more fundamental change through improvements in analysis and measurement of performance which will lead to a more cost effective risk based approach to emergency cover.

2.2. The RDS review has confirmed that there are significant areas for improvement in relation to; the maintenance of competence of retained firefighters; availability of front line pumping appliances; recruitment and retention of staff; and reduced costs associated with the general running of each station.

2.3. The Command and Capacity Review has clearly identified that an overall enhancement of the current organisational structure and staff establishment is required to align it to the current and anticipated risks and demand levels. Most notably, there are shortfalls in the number of officers required to meet the planning assumptions for command and control and the supporting roles at emergency incidents. In addition other gaps in capability and capacity have been identified resulting in recommendations to increase the number of staff in each Directorate. One major element for consideration is the capacity of the organisation to deliver the major change programme that WYFRA is facing over the next three years.

2.4. Implementation of the recommendations emanating from the five reviews represents a major challenge to the organisation and detailed implementation plans are now being drawn up by individual project managers. The inter-dependencies will require careful control by the IRMP Programme Board, chaired by the DCFO and supported by the IRMP Programme Manager and IRMP Team.

2.5. Sections 4 to 8 of the report provide more detail in relation to the outcomes of the five reviews, financial implications are summarised in Section 9 and the establishment changes arising from all five reviews are summarised in a table at Appendix 7.

3. IRMP REVIEW CONSULTATION PROCESS

3.1. In 2003 the department for Communities and Local Government (CLG) issued guidance for FRA’s on the consultation process to be adopted in respect of their IRMP proposals and Action Plans. This guidance forms the basis upon which WYFRS consults with its stakeholders.

3.2. The consultation process adopted for each of the five reviews has been specific to each review. The outcomes have been meaningful and constructive, leading to collective agreements with representative bodies and extensive responses in relation to proposals. This has allowed Officers to have regard to comments made during the consultation process and in many cases, adapt the proposals accordingly. Where appropriate consultation responses are referenced in the report.

4. REVIEW OF MANAGERIAL COMMAND AND CAPACITY

4.1. The last major organisational review took place in Sept 2005 as part of the phase two of Flexi Duty System (FDS) review and corporate restructure project. Since that date minor departmental structural changes have occurred, mainly as a result of Best Value reviews or external consultant’s reports.

4.2. These have lead to the enhancement of the Corporate Communications Team, restructure of the IT Department and the creation of a Central Data Team. Human Resources and Community Fire Safety departments and Operations have had minor restructures, the Finance section was also restructured due to them undertaking additional working which was previously carried out by Kirklees Council in 2008.

4.3. The main thrust of the 2005 corporate restructure has served the Authority well and in the main the Managerial Command and Capacity Review does not recommend any changes to the actual managerial reporting lines which are still fit for purpose.

4.4. The managerial review team have undertaken a robust examination of the current establishment and have aligned the actual establishment to the Authority personnel (SAP) computer database. Systems to monitor and ensure that all changes are correctly authorised have been put into place.

4.5. Each Director has appointed their respective Area Managers to investigate the current levels of resources available to them in their area of responsibility and highlight any areas of under or over provision given the very different environment that the Fire and Rescue Authority (FRA) now operates in.

4.6. There is little doubt that the pressure for change since the previous review have increased significantly, with the introduction of the Fire and Rescue Service National Framework, Comprehensive Performance Assessment (CPA) and the modernisation agenda to name but a few acting as major catalyst for change. Additional duties on FRA’s and higher public expectations of the service continue to provide challenges. The recent replacement for the CPA process by the Comprehensive Area Assessment (CAA) from April 2009 has caused a significant workload increase on the Authority, with increased emphasis on self audit and self assessment.

4.7. The review team has had to balance managerial and command needs against capacity to ensure that the Authority’s frontline emergency response units continue to provide 24/7 cover. Comparisons made with other metropolitan fire authorities indicate that West Yorkshire Fire & Rescue Service has a lower officer ratio than most other similar organisations. The table below has been obtained from this year’s Chartered Institute of Public Finance and Accounting (CIPFA) 01.09 which clearly shows this.

Table 1

FRA’s BM AM GM SM WM CM FF Greater 5 18 33 82 338 208 1307 Manchester Merseyside 3 4 13 32 206 74 712 South Yorks 4 5 9 38 116 148 518 Tyne & Wear 4 4 23 14 154 142 571 West Midlands 5 7 33 24 292 293 1283 West Yorks 4 4 16 57 222 245 954 London 28 1 80 192 822 801 2980

Humberside 4 4 19 42 88 105 434 North Yorks 3 4 13 17 49 48 203 Average 7 6 27 55 254 229 1107

Key: BM- Brigade Manager AM- Area Manager GM- Group Manager SM- Station Manager WM- Watch Manager CM- Crew Manager FF- Firefighter

NB. The National Role Maps from WM to AM have two pay grades, referred to as A and B.

4.8. A major part of this review has been to ensure that 24/7 operational emergency incident command cover matches demand and in order to achieve this planning assumptions have been utilised by the Operations team to ensure that adequate command officer and specialist officer cover is maintained to provide safe systems of work. Based on these current planning scenarios, and even taking into account the excellent sickness absence record and flexibility of officers, the present ratio, especially for weekend cover, is currently under resourced. Instances have occurred over the last twelve months, during levels of normal demand, where insufficient officers were on duty.

4.9. All posts shown below have had a detailed job description produced to allow for a job evaluation exercise to be carried out where appropriate. A rationale for each post has also been produced together with a risk assessment for each post to show the potential risk to the organisation if these posts are not approved. A process of initial scrutiny was undertaken by a consistency panel made up of the 5 fundamental review project leads, with final scrutiny and challenge being applied by Management Board at its meeting on the 14 Sept 2009, where reductions in the number of proposed posts occurred. Management Board also convened a further meeting on the 20 Oct 2009 where lead officers were required to justify all growth bids. This process led to further reductions in the number of posts being requested.

4.10. The review team has therefore concluded that there is a currently a short fall of ten posts representing an increase of 0.46% over the existing establishment and nine posts that require upgrading across the service as shown below (listed by Directorate).

4.11. Corporate Resources & Finance

Post No’s Grade Req Data Processing Asst 2 G5 Deputy Finance Man 1 G13 Corporate Services Officer 1 G10 Station Manager B -1 SMB

4.11.1. The increase in posts for Corporate Resources and Finance arises from the introduction of the CAA process which requires greater effort with regards to higher standards of financial accountability. The provision of accurate and reliable financial information is also becoming critical given the importance of fire and other data as part of the IRMP process and the important strategic decisions that this data is used for. The workload associated with the inputting, processing and analysis of data has increased significantly and is particularly important in relation to operational risk information and performance management.

4.11.2. The Corporate Services Department currently includes a Station Manager (B) post which undertakes a range of duties but is primarily involved with the development of WYFRS Business Continuity Planning processes and supports the Risk Management Strategy Group. Whilst some operational experience is advantageous in this post, it is not essential and therefore it can be more cost effectively delivered by a non operational specialist. The post will therefore be replaced by a Grade 10 non uniformed position.

4.11.3. Project Management for major building schemes was also highlighted as an area which requires additional resources to cater for the increased workload associated with the Five Town’s fire station building programme and the development of the FSHQ site. However this has been excluded from this review and external project management skills are readily (and more appropriately) available from a number of external sources and will be funded from the capital programme.

4.12. Fire Safety & Community Relations

Post No’s Req Grade Partnerships Officer 1 G10 Com Safety Manager 1 G13 Station Manager A -1 SMA

4.12.1. The main reason for the growth in the Fire Safety & Community Relations Directorate lies again with the introduction of the new CAA process especially with the need to carry out the Area Assessment, which is an additional requirement for 2009 onwards. The main focus of that Area Assessment requires the development and monitoring of our local partnerships and communication with stakeholders and an additional Grade 10 Partnerships Officer post is therefore required.

4.12.2. More recently the extensive growth in the community safety establishment and the promotion of the Community Relations Manager has identified a major gap in management provision and has resulted in a shortfall in managerial and leadership capacity within Community Safety. A major concern is the ability to carry out effective performance management, particularly in ensuring effective delivery of the IRMP and CAA agenda and supporting improvements in the evaluation of local projects and partnership activity. Project development is carried out at AM level rather than being led at GM or equivalent level and there is a lack of support available for the development and delivery of the District Action Plans. This work is a senior managerial position but is not required for operational purposes and can therefore be delivered more cost effectively as a non-uniformed Grade 13 post which will replace the current SMA.

4.13. Human Resources

Post No’s Grade Req Central Staffing 1 G5 Administrator TOKO Group Manager 1 GM (FDS) Station Manager (B) 1 SMB ICS Training (FDS) Fitness Advisor 1 G8 TOKO SMB -1 SMB ICS Training SMA -1 SMA Fitness Trainer WMA -1 WMA

4.13.1. The need for changes in the Human Resources Directorate arises mainly from the introduction of the new Central Staffing Function as part of the Duty System Project. The Personnel and Training Committee have already approved an establishment for the Central Staffing Team based on initial estimates of the work associated with the new ways of working. It has now been identified that the work associated with the allocation of training courses for all operational staff and ensuring that this has limited impact on crewing levels, is far more complex and demanding than was first envisaged. A further Grade 5 administrator is therefore needed.

4.13.2. The increased emphasis on health and safety at emergency incidents and the increased use of the Training Centre in training delivery and planning to address these risks has resulted in the need for a review of the grades of officers responsible for this work. There is a real need to incorporate learning from operational incidents and from exercises into policy, procedures and practices and the Operations and Human Resources Directorate need to work much closer together to ensure this takes place. To achieve this, one officer will have overall responsibility for this area of work. In addition, the responsibilities of the Incident Command Training Officer (currently SMA but not on the flexible duty system (FDS) rota) have increased and this post holder also needs to maintain current understanding and experience of the operational environment. For these reasons, the Technical Operational Knowledge Officer (TOKO) role needs to be upgraded from SM to GM (this officer will work closely with the new SM Operational Learning Officer - see below in Operations Directorate) and the Incident Command Training Officer needs to be upgraded from SM (A) to SM (B). The upgrades of these two posts are also necessary to support the increased requirement for officers working the Flexible Duty System (FDS) to support the Incident Command System (see Operations Directorate changes) in a cost effective way.

4.13.3. The introduction of the new duty system will place a great strain on the ability of the current succession planning process at the Training Centre for provision and replacement of Instructors, which currently relies heavily on a pool of temporary seconded fire fighters from operational posts. From Jan 2010 this facility will not be available and therefore some restructuring within the existing department establishment will need to be undertaken which may lead to some existing posts being regraded. This however, will be met from within the existing budget.

4.13.4. In order to support the process of recruitment and retention of women into the operational service it is important to provide appropriate fitness instruction and ongoing testing. Fitness programmes need to be designed to reflect the requirement of the national fire-fighters selection tests and also the demanding requirements of the 13-week training centre course. WYFRS also has compulsory fitness testing for all operational personnel which, in addition to ensuring they can carry out their duties, also improves the health and wellbeing of our staff. It is therefore appropriate to appoint a Fitness Advisor to work on the above and with watch

fitness instructors on fitness programmes and also be part of the fitness testing process. This role is currently undertaken by a WMA and replacing this post with a non operational post on Green Book terms and conditions, the same function can be carried out at reduced cost.

4.14. Operations

Post No’s Grade Req GM Risk 1 GM SM Operational Learning 1 SM SM Resilience 1 SM WM Resilience 1 WM SM (Operational Command) 2 SM WM (Districts) 5 WM

Delete grade posts -5 G5

4.14.1. The main reason for the additional growth within the Operations Directorate lies with the need to provide sufficient numbers of command officers and specialist support officers to enable our Flexible Duty System to work effectively, providing a 24/7 emergency response across the county and ensuring safe systems of work at incidents, undertaking investigations, providing out of hours managerial support etc. As detailed in table 1 West Yorkshire Fire & Rescue Service has a lower ratio of Officers than most of our metropolitan counterparts. A fundamental review of the emergency incident command requirements has been carried out as part of the Command and Capacity Review and this has highlighted shortfalls at certain times of the week, particularly weekends, when there are insufficient officers available to meet the planning assumptions. These planning assumptions are used primarily to ensure the appropriate number of officers are available to attend emergencies and ensure the safety of firefighters. One option was to simply increase the number of officers on the existing duty system but this was cost prohibitive and a more efficient duty system has therefore been developed. This will require our officers working more weekends and having an overall reduction in the number of rota days although there is still the need for a small increase in the number of officers at SM and GM level. Negotiations with representative bodies have been extremely positive and it is anticipated that collective agreement will be reached for the introduction of the new duty system in January 2010. All the operational posts referred to in this report fall within the numbers identified for Incident Command purposes

4.14.2. The CAA process has had an impact on the workloads of District Managers who are now key players in our local partnership working arrangements and require additional support from their Station Managers which has a corresponding impact on their workloads. Two additional Station Manager (Operational Command) posts will increase capacity in this area. The initial assessment of workloads indicated that this should be five more SM’s but this would have gone beyond the minimum number of officers for incident command purposes referred to above and therefore was rejected by Management Board on basis of affordability. Other organisational changes, for example managerial support as part of the IRMP Specials Review, and the enhanced flood rescue capability and the centralised Operational Assurance function (see below), will reduce the workloads of station managers in some areas and therefore the impact of this reduction from five to two does not represent a significant risk.

4.14.3. Compliance with the National Framework and our statutory obligations are also impacting on the operational units and it is important to ensure that the Authority tests and develops command competence in light of high staff turn over and decreasing exposure to incidents. In order to address the current gap in resources and meet the increasing requirements for self audit and assessment, an enhancement to the centralised operational audit function will be introduced with

two additional SM (Operational Assurance) posts. However, these posts (both required for incident command purposes) are currently dedicated to the FireControl project and the transition to Regional Control Centre (RCC). One post is currently funded by Communities and Local Government (CLG) and one post is funded by WYFRA until conclusion of the RCC project, currently planned to occur in late 2012 and at that point both these posts will require funding by WYFRA as part of the Operational Assurance Team, including specific responsibility for quality assurance associated with mobilising and communications and the relationship with RCC.

4.14.4. The increased emphasis on performance and service standards at station level is also an important aspect of a modern fire and rescue service and District Commanders are put under increasing pressure to meet station based performance targets. The initial District structure included provision for five non uniformed posts to support the District Commander but many of these targets are related to operational planning and performance which will be increasingly important as the new Operational assurance Framework is introduced. It is therefore necessary to replace the five non-uniformed Grade 4 posts (all currently vacant posts) with five WM (A) posts. These posts will also be utilised to increase the capacity of the organisation in terms of operational resilience as WYFRS becomes increasingly flexible and more efficient in its emergency response arrangements.

4.14.5. Similarly Risk Management is increasingly becoming much more business critical and there have been significant developments in WYFRS risk management processes. The Audit Commission has acknowledged this area of work as best practice in local government. In terms of the Operations Directorate (which is the most critical area of organisational risk) this work, including the development of far more effective means of gathering and utilising operational risk information, has been led by a temporary GM and it is now appropriate to formally introduce this into the establishment on a permanent basis.

4.14.6. Our planning and preparedness for major incidents, including the terrorist threat, environmental changes, including flooding and our own internal business continuity arrangements is under immense pressure and again this gap is currently filled by temporary posts (SM Resilience and WM Resilience posts) pending a full assessment of need. It is now appropriate to fill these posts on a permanent basis.

4.14.7. It is important to note that all the gaps in capability that are currently being filled on a temporary basis utilise resources from within the existing establishment resulting in a managed shortfall at station level. With the introduction of the Operational Resourcing Pool (ORP) there will no longer be any capacity to support these posts and therefore some of the savings from the introduction of the ORP are being re- invested in these vital areas.

4.15. Financial implications

4.15.1. A detailed analysis of the costs of the review is provided in paragraph 9 of this report. However the overall financial cost of the command and capacity review is £0.636m which is analysed in the table below. . However the impact of the current financial climate and subsequent suspension in recruitment will mean that the vacancies created by filling the uniformed posts internally will not be back filled thus reducing the cost of the review by £0.3m.

Directorate Number of Cost Posts Corporate Resources & 4 £84,400 Finance Fire safety 2 £37,300 Human resources 4 £45,800 Operations 11 £468,800 Cost of review 21 £636,300

4.16. Summary

4.16.1. The purpose of this review was to identify optimum levels of resources required to provide a professional service in all managerial and command activities. The review took account of the organisational structures associated with each of the other Metropolitan Fire and Rescue Authorities and benchmarked West Yorkshire FRS’s structure against these.

4.16.2. The current organisational structure was assessed and a series of calculations were made to establish respective Directorate and individual organisational unit costs. The process to provide an accurate determination for the current organisational structure, together with relative costs for each Directorate, has been complex. However, this process has now been completed and identified a number of gaps in capacity and capability where investment is required.

4.16.3. The Review identified that there is little doubt that the drivers for change since the last review in 2005 have been unprecedented, with the introduction of the Fire and Rescue Service National Framework and the requirement for modernisation of all public services. The introduction of Comprehensive Performance Assessment (CPA), replaced in 2009 by Comprehensive Area Assessment (CAA) has created a significant increase in the workload for WYFRS, with increased emphasis on self audit and self assessment. Additional duties on FRA’s and higher public expectations of the service continues to provide challenges and some notable incidents in other parts of the United Kingdom, where firefighters have lost their lives, have raised the levels of concern in relation to the management of health and safety at emergency incidents.

4.16.4. A major part of this review has therefore centred on ensuring that operational emergency incident command cover matches demand. In order to achieve this, planning assumptions have been utilised by the Operations Team to ensure that adequate command and specialist officer cover is maintained to provide safe systems of work. Based on these current planning scenarios and even when taking into account the excellent sickness absent record and flexibility of officers, the current system, especially for weekend cover, is under resourced. Instances have occurred over the last twelve months, during levels of normal demand, where insufficient officers were on duty to meet the policy requirements which are based on reasonable planning assumptions.

4.17. Recommendations

4.17.1. That Members note the outcome of the Review of Managerial Command and Capacity and approve an increase on the current establishment as detailed in this section of the report.

5. REVIEW OF THE RETAINED DUTY SYSTEM (RDS)

5.1. The terms of reference for the RDS review was to conduct a fundamental review of the current roles expectations and capabilities of Retained Duty System staff. This focussed upon and researched five key areas of the RDS:

• Recruitment and retention. • Whole-time support mechanisms. • Relocation of resources. • Training. • Salary schemes and RDS shift systems.

5.2. A detailed report was produced for the Personnel and Training Committee on 25th September 2009 and Members of the Committee approved the following recommendations:

• That the RDS weekly training is increased from three to four hours.

• That a post of Retained Support Manager (RSM) be established with dedicated responsibility for the Retained Duty System, providing effective command, leadership and management of this vital part of WYFRS operational capability.

• That limited wholetime resources, in the form of Local Retained Support Officers (LRSO), be appointed to each RDS fire station to undertake risk reduction activity, provide managerial support and address crewing shortages.

• That a limit of two hours per week per station establishment figure (i.e. generally 2 x 12 hours) be placed on general/administrative tasks for each fire station for non- operational work (e.g. equipment standard tests).

• One additional hour per week per establishment figure is made available to be managed centrally by the RSM to meet specific needs, including additional training requirements (e.g. major exercises) recruitment campaigns, community safety and other activities.

• That evaluation is undertaken at nine months and eighteen months from implementation and that the outcomes are reported to Members.

5.3. As reported to the Personnel and Training Committee on the 25th September 2009, the costs associated with the implementation of the above proposals is £1.1m per annum.

6. REVIEW OF EMERGENCY RESPONSE PROVISION

6.1. The initial stages of this review required detailed and protracted data analysis to be undertaken to establish current incident response performance and to benchmark this against previous performance. Investment in a number of analytical tools has resulted in a much more sophisticated approach to emergency cover planning and analysis including; the National Fire Service Emergency Cover (FSEC) toolkit developed by Communities and Local Government (CLG); Active Phoenix, a workload analysis software tool; the Management Information System (MIS) and Incident Recording System (IRS) which record all incident data from the Command and Control System; and MOSAIC, software that identifies lifestyle issues that have a direct correlation with fire risk. This analysis clearly indicated that average response times to incidents were increasing and this triggered an investigation to identify the probable causes.

6.2. This investigation revealed a number of factors associated with the apparent reduction in performance. One factor relates to a significant reduction in the number of incidents in the major towns and cities of West Yorkshire where attendance times are much quicker than in the smaller towns and villages served mainly by RDS fire stations. Whilst we have seen reductions in the number of incidents in these smaller towns and villages, this has been relatively low compared to other more urban areas. The impact of this is that the overall average attendance time across West Yorkshire increases although this does not necessarily result in a reduction in performance in each local area, therefore, to some extent, an increase in average attendance times is not necessarily a negative indicator and further analysis is necessary at a detailed level.

6.3. There is a proven link between an increase in attendance times and a worsening in traffic congestion. The recent Fire Research Series document “Review of Fire and Rescue Service Response Times” (FRS 1/2009) has identified that, nationally, FRS incident response times have increased by up to 18% since 1996 and that the main factor

associated with increased FRS response times is traffic levels. The research highlighted that the correlation between traffic congestion and increase in attendance times is particularly strong in West Yorkshire. Clearly the increase in traffic congestion is not something that WYFRS can address and is also likely to get worse in the future. An improvement in response times would therefore require some innovative solutions if it is to be achieved without major increase in expenditure.

6.4. The analysis has also identified that it is not appropriate to measure all incidents across the whole of West Yorkshire to the same standard, for example the response to a house fire with people trapped compared to a grass or rubbish fire. Drivers are trained to “Drive to Arrive” taking into account, amongst other things, the type of incident they are responding to and the measuring and monitoring of overall average response times places the emphasis on speed, which may result in unnecessary risks being taken.

6.5. Whilst initially the focus of analysis was identifying where improvements in attendance times can be made, it has also revealed major imbalance between the consistent level of resources available for emergency response and the extremely variable risk and demand levels, with significant over provision at certain times of day, days of the week and times of year. This has identified potential opportunity for redistribution of these resources and significant efficiency savings.

6.6. A detailed investigation of the entire process from initial receipt of an emergency call to the point when an emergency vehicle arrives at the scene has also been undertaken. This highlighted some areas where, if certain steps were taken, could result in improved performance, offsetting the impact of the worsening traffic congestion.

6.7. Some of the issues identified by the review can be addressed relatively quickly and without significant investment whilst others require a lot more research to identify the best solution. It is therefore proposed to adopt a five phased approach as follows:

Phase 1

i. The introduction of “Standby” arrangements for locations with higher operational activity levels, which will ensure the immediate availability of a pumping appliances within these areas for all second and subsequent calls.

ii. Introduction of dual-mobilisation arrangements from different directions for areas of West Yorkshire where response times are hindered by traffic congestion. This will enable a response to incidents to be made by using more than one approach route.

iii. Introduction of “pre-alerts” on station by Mobilising and Communications Centre (MACC) to speed Alert to Mobile times. This will involve MACC letting a station know when a call is on its way before they have the full information, thus allowing crews to dress in fire kit and muster on the appliance awaiting despatch information and hence speeding the response. N.B. There are some technical challenges associated with the introduction of pre-alerts that may prevent their introduction in the short to medium term.

Phase 2

iv. The development of a three-tiered response standard which will establish separate response targets for life risk, building fires and other incidents with appropriate guidance on response for drivers of emergency vehicles attending these incidents.

Phase 3 v. Using the latest information and tools WYFRS now has available, undertake an analysis of areas within the county where response standards fall short of reasonable expectation based on the risk and introduce appropriate measures

to reduce risk within these areas (for example concentrated community safety activity as opposed to expensive improvements in emergency response provision).

Phase 4

vi. Alignment of resource provision to risk and demand levels and introduction of flexible operational resource deployment arrangements and alternative duty systems and crewing arrangements where appropriate.

Phase 5

vii. Investigation of the scope to reduce the weight of response (number and type of vehicles and number of firefighters) which responds to different categories of incident.

6.8. Implementation of Phase 1 has already commenced. Phase 2 to 4 will rely heavily on creating clear performance standards that are appropriate to the risk in each station area but that also take account of geographical factors. The adoption of different duty systems and crewing arrangements aligned to the local risk and demand will represent a major element of the future strategy for identifying the efficiencies on the scale needed to meet the anticipated challenge of reduced budgets.

6.9. The implementation of the above recommendations are dependent upon the development of the sophisticated risk modelling software (FSEC, Phoenix Active and Mosaic etc. referred to earlier) which may require some initial investment to realise future efficiencies. Arrangements are in place to secure the future provision of risk information and it is anticipated that a further report on progress will be made to the Fire Authority in early 2010.

6.10. Monitoring and Review Process

6.10.1. The DCFO will assess operational performance against the three-tiered response standard developed in Phase 2 of the Emergency Response Review. The monitoring will be carried out on a monthly basis via the Senior Operations Team using a three month rolling average, with the DCFO reporting on performance on a six-monthly basis to an appropriate WYFRA Committee as part of improvements to the Operations Directorate Operational Assurance process.

6.10.2. A more detailed review of performance will be undertaken by the DCFO at both nine and eighteen months after the introduction of three-tiered response standard, reporting to the Fire and Rescue Authority by April 2012. The evaluation will be carried out by comparing performance on attendance standards both prior to and following any changes to fire cover arising as a result of the 2009-12 IRMP. The evaluation will be expressed in terms of a cost/benefit summary with costs expressed in terms of financial efficiency and benefits as performance against the three-tiered response standard and compared with previous performance.

7. REVIEW OF SPECIALIST APPLIANCES AND SPECIALIST RESCUE RESOURCES

NB A full Glossary is provided at Appendix 6 for all Specialist Appliances referred to in this report.

7.1. West Yorkshire Fire and Rescue Authority (WYFRA) are required, by virtue of the Fire and Rescue Services Act 2004, to respond to fires and road traffic collisions. The Act also gives powers to the Fire and Rescue Authority to utilise its resources for incidents other than fires and road traffic collisions. In addition, the Civil Contingencies Act places statutory duties on WYFRA, as a category 1 responder, to play its part in planning for and responding to major emergencies. The Local Resilience Forum, a partnership between all

parties in West Yorkshire that has responsibility for preparing for major emergencies, has developed a Community Risk Register (CRR) and this specifies which partner takes the primary role in preparing for and responding to a range of major incidents. This CRR forms the basis for the planning assumptions used as a key element of this review, i.e. it underpins the business case for the provision and use of the specialised equipment.

7.2. West Yorkshire Fire and Rescue Service maintains a number of specialist vehicles and a range of equipment to deal with a vast range of emergency situations in addition to fires. For example more complex emergencies associated with accidents on rail and road and other incidents where people may require rescue from water, collapsed buildings or rescue from height, cliff edges etc. We also have specialised equipment to deal with emergencies such as major petrochemical fires where we use foam to extinguish the fire or sometimes we attend chemical spillages where firefighters need special protection and decontamination. We also have other equipment to move large quantities of water to fight fires or to mitigate the effects of flooding. All this equipment is specialised and requires highly trained firefighters to use it safely but in many cases it is used infrequently.

7.3. The Fire and Rescue Service National Framework includes the following reference to New Dimension resources provided by central government as part of the regional and national response capability for major incidents and disasters:

“New Dimension resources are intended to be mainstream Fire and Rescue Authority assets”.

7.4. In addition, Government has developed proposals to transfer ownership of these assets to FRA’s where they are located. WYFRA has already advised the department for Communities and Local Government (CLG) of its support, in principle to such a transfer of ownership.

7.5. By mapping our capabilities against the planning assumptions contained within the CRR and an assessment of current activity and risk levels there is strong evidence to support the full integration of the New Dimension assets into WYFRS mainstream response capability, with significant potential to make identifiable service delivery improvements. At the same time a number of efficiency gains can be achieved by utilising the New Dimension resources to their maximum potential and by reviewing the capability of all WYFRS specialist resources, including the manner in which they are transported to incidents (i.e. by Prime Movers and Demountable units) and the associated crewing arrangements.

7.6. The specialist response and rescue capability of WYFRS has changed and improved dramatically in recent years, most notably with the introduction of vehicles and equipment as part of the Government’s New Dimensions programme. The Urban Search and Rescue (USAR) capability, the Mass Decontamination Equipment, the Detection Identification and Monitoring Equipment (DIM) and High Volume Pumps (HVP) have been provided by government for use in local, regional and national emergencies. In addition, the role of the Fire and Rescue Service has evolved, with the introduction of specialised rescue equipment on all front line fire appliances to deal with road traffic collisions. It was therefore appropriate to undertake a review of the provision of specialist appliances and specialist rescue resources.

7.7. This review has identified that scope exists to change the existing methods by which the Authority currently provides some specialist resources to incidents. The majority of the Authority’s specialist resources provide logistical support to the fleet of 62 pumping appliances which are distributed to ensure an immediate fire and rescue response across West Yorkshire. These specialist resources are therefore county wide assets and although in some cases it is desirable to consider their geographical location, on most occasions this is not relevant as they do not provide a resource for a local area in the same way as a first strike fire appliance does.

7.8. Another key aspect of the review was to optimise the efficiency of resources whilst attempting to mainstream the New Dimension assets into WYFRS capability and improving service delivery. As previously mentioned, the proposals from this review are underpinned by detailed analysis of operational equipment and capabilities and the development of a series of planning assumptions against risks identified within the CRR.

7.9. A formal twelve week consultation period commenced with key stakeholders in July 2009 concluding on 5 October. This included extensive consultation with all operational personnel in WYFRS (and specifically with the staff at stations affected by the proposals), consultation with the Local Resilience Forum (our key partners in delivering against our expectations under the Civil Contingencies Act) and with representative bodies. A full list of consultees can be found at Appendix 2. The consultation process has been extremely valuable, with many of the proposals being revised as a result of responses received. A summary table can be found at Appendix 1 which provides details of the issues raised and the impact on the review proposals.

7.10. A number of the proposals have implications for the terms and conditions of employees and consultation with representative bodies has been ongoing for some time, having first commenced on 20th May 2009 as part of the review when proposals were being developed. Negotiations are very constructive and these will continue to be progressed by the Director of Human Resources.

7.11. The main outcome of the review has been the development of a range of proposals to rationalise the existing specialist resources and these proposals fall under four main headings:

• The pooling of compatible resources at specific locations with the aim of creating specialist “themes” at each lead station, with supporting stations. • Addressing deficiencies in specialist skills. • Creation of a comprehensive Flood Rescue capability. • Rationalisation of Prime Movers and Demountable Units and Ancillary Equipment.

7.12. The following paragraphs explain in more details the proposals against each of these main headings. Members should note that this report deals with changes to the current provision and that there are a number of Special Appliances at other locations that remain unchanged as a result of the review.

7.13. Themed Stations. The creation of specialist teams at designated fire stations with support stations which will facilitate improved ownership and management of these resources. The themes and station locations are as follows:

• Hazardous Materials (Dewsbury supported by Ossett) • Technical Rescue (Cleckheaton supported by FSHQ) • Logistics (Odsal supported by stations still to be determined) • Water (Stanningley supported by Mirfield) • Petrochemical Firefighting capability (Foam) (Hunslet) • Command ( Batley supported by Castleford)

7.14. The detailed rationale behind each of the associated changes for the themed stations is shown below and Appendices 3 and 4 provide a graphic illustration of the main proposals.

7.15. WYFRS currently delivers the majority of specialist resources and equipment by the utilisation of Prime Movers (vehicles designed to collect and deliver standardised containers or units). These vehicles and the standardised Demountable Units themselves have evolved over a period of time and whilst the concept remains sound and provides a flexible means of transportation, there is significant scope for improvement. In order to achieve this, a whole series of actions are required to create a more integrated approach to providing a modern fleet of Specialist Resources

7.16. Average mobilisations for demountable unit based resources are extremely low and the current whole-time staff expenditure in providing these resources is in the region of £1.9 million. The demand and activity levels for some prime movers also varies significantly and again some have very low levels of operational activity. The work undertaken by the Specialist Resources Review Group has identified that scope exists to change the existing methods by which the Authority currently provides specialist resources to incidents. Details associated with the changes to introduce themed stations are provided below.

7.17. Dewsbury to become the Hazardous Materials Station supported by Ossett.

7.17.1. WYFRS has been provided with an Incident Response Unit (IRU) as part of the national capability for mass decontamination and the Detection, Identification and Monitoring (DIM) Unit for dealing with incidents involving hazardous materials. WYFRA receives grant funding to cover some of the costs of this capability. The IRU and DIM Unit both have a capability to decontaminate firefighters, but are not currently being utilised for this purpose. The Tactical Guidance Document, Fire and Rescue Service Response to Chemical, Biological, Radiological and Nuclear (CBRN) Events, identifies a number of outcomes for CBRN incident response capabilities, including the attendance of the first IRU within 30 minutes. West Yorkshire FRS is required to maintain a capability for such deployments, therefore the option to utilise this resource for routine incidents has been discounted. However, the potential exists to extend the use of the DIM Unit and to fully mainstream this asset into core business activities, together with the provision of full decontamination facilities for less protracted hazardous materials incidents. This would duplicate the existing capability in the form of the Hazardous Materials Unit (HMU) at Dewsbury which can be redeveloped as a back up and to provide specialised decontamination.

7.17.2. It is therefore proposed to establish Dewsbury as a specialist Fire Station for the delivery of a capability for dealing with incidents involving Hazardous Materials in a more efficient manner by implementing the following recommendation:

Recommendation 1

Outcome = improved capability at reduced cost

7.18. Cleckheaton to become the Technical Rescue Station for West Yorkshire

7.18.1. WYFRS has been provided with part of the national capability for Urban Search and Rescue (USAR) and receives grant funding to cover the costs; this capability is located at Cleckheaton. The Review has identified the potential to expand this capability and for it to absorb the roles and services currently being provided by the Major Rescue Units (MRU’s) and the specialist trained (Level 2) line rescue teams, based at Elland, Pontefract and Rawdon.

7.18.2. MRU’s were first commissioned in 1995 to address a limited provision of technical rescue equipment available for incident deployment. In recent years WYFRA has invested heavily in the provision of new rescue equipment for front line pumping appliances, together with vastly improved training for all operational members of staff.

7.18.3. The introduction of the USAR capability offers a far superior technical rescue capability to those being provided by the Major Rescue Units (MRU) and the level of training undertaken by each USAR Technician is to the highest available standard. The availability of USAR resources and the provision of vastly improved technical rescue equipment on pumping appliances have resulted in much of the equipment carried by MRU’s being obsolete.

7.18.4. The review has therefore identified that by increasing the number of USAR Technicians (currently 16) and the adoption of an appropriate flexible duty system it is possible to facilitate an immediate technical rescue response capability for WYFRS that is superior to that currently provided by the MRU’s. These Technicians would crew a purpose built Technical Rescue Vehicle and respond to a variety of technical rescue related incidents within West Yorkshire.

7.18.5. A national and regional USAR response capability will still need to be maintained in a similar manner to that currently being provided which will require supplementing the staffing at Cleckheaton to provide enough USAR technicians to crew the TRV and pumping appliance and provide the USAR modules within the terms of the national planning assumption. Due to the level of training and commitment of the USAR technicians it is proposed to offer an Additional Responsibility Allowance (ARA) in return for these services (level to be determined). Maintaining availability of the TRV and USAR capability will also require the utilisation of a combination of a new duty system and very occasional overtime. Negotiations in relation to the details associated with these revisions to contracts are currently underway with representative bodies.

7.18.6. In order to ensure that the technical rescue equipment remains ready for use it must be appropriately tested and maintained. It has been identified that the centralisation of all technical rescue and USAR assets at one location would impose a significant burden on operational personnel, potentially impacting on their training and there is a need for dedicated logistics and maintenance support to undertake this function.

7.18.7. In addition the irregular occurrence of rescues from height, together with the provision of twelve Level 2 line rescue crews across West Yorkshire has resulted in few opportunities for each respective crew to utilise their skills and gain operational experience of these types of incident. In addition to the line rescue teams, the Urban Search and Rescue capability at Cleckheaton includes activities where line rescue and the use of lines for other related activities forms an integral part of their capability. Extending this to incorporate Level 2 line rescue would be complementary to their role and far more efficient than maintaining the skills of twelve teams.

7.18.8. The new Technical rescue Centre at FSHQ will provide the base for the vast majority of training for USAR teams and the national USAR assets would be stored and maintained at this location

7.18.9. It is therefore proposed to establish Cleckheaton as a specialist Fire Station for the delivery of a Technical Rescue capability, incorporating the national USAR obligations by implementing the following recommendation:

Recommendation 2

Fully mainstream the Governments USAR resources at Cleckheaton into WYFRS technical rescue capability and procure a Technical Rescue Vehicle (TRV) and associated equipment suitable for swift deployment to technical rescue incidents within West Yorkshire. Withdraw both MRUs from operational service and utilise USAR trained staff and resources for all incidents within West Yorkshire requiring technical rescue assistance and expertise. Create the post of Technical Rescue and USAR logistics support at FSHQ to ensure the effective maintenance of equipment. Centralise the future provision of Level 2 line rescue capability with the Technical Rescue Team at Cleckheaton and discontinue the existing Level 2 line rescue provision at Elland and Pontefract. A further Line Rescue capability exists at Rawdon fire station and this will remain in place subject to the successful introduction of the Level 2 line rescue capability and be reviewed after 12 months.

Outcome = improved capability and resilience

7.19. Management Support for New Dimensions Assets.

7.19.1. The co-ordination of appliance availability, crew training, equipment maintenance, quality assurance, monitoring and review of all New Dimension (ND) assets within West Yorkshire currently falls upon Station Commanders who also have responsibility for station personnel. The burden of this workload is expected to grow once the Long Term Capability Management issues are resolved and ownership of the ND assets is taken over by WYFRA. More support is therefore needed to ensure that WYFRA can meet its responsibilities and obligations in assuring that these assets are available for large scale incidents within and outside West Yorkshire and to ensure the health, safety and welfare of WYFRS personnel.

7.19.2. It is proposed that this workload is best dealt with by the creation of a specialist officer post (Station Manager - New Dimensions Lead). This officer would also have responsibility for operational audits of ND assets as well as a clear Quality Assurance function in relation to ND assets/capability, liaison with the National Resilience Assurance Team and Vosper Thorneycroft (the national maintenance contractor). The officer will also help to create and monitor policy and procedures in relation to ND assets and will report to the Group Manager in Operational Preparedness.

Recommendation 3

Outcome = improved quality assurance, managerial control and coordination

7.20. Hunslet to become the Specialist Petrochemical Firefighting Station.

7.20.1. West Yorkshire contains a number of major petrochemical risks that if involved in fire would require specialised foam and equipment to extinguish. In addition, the transportation of flammable petrochemicals by road and rail and the special risks associated with Leeds Bradford International Airport present a risk of this type of incident occurring and therefore it is appropriate that the capability exists to respond.

7.20.2. Dealing with fires involving large quantities of flammable petrochemical substances is highly specialised and the capability to deliver firefighting foam is currently split between two stations (Stanningley and Rothwell) with a prime mover to transport equipment based at Featherstone. The review has concluded that WYFRS capability in Foam delivery would be enhanced by designating one specialist station to improve crew confidence, expertise and knowledge of firefighting at this type of incident. The development of specific qualifications in recognition of these skills and capabilities would be seen as a distinct improvement.

Recommendation 4

Outcome = improved capability at reduced cost with enhanced coordination

7.21. Odsal to become a Specialised Logistics Station.

7.21.1. The successful planning and response to any major incident relies heavily on a number of logistical functions to ensure the appropriate resources are in place at the right time. Some of this function is carried out centrally, for example the Mobilising and Communication Centre (MACC) but there is also an important logistical function carried out by fire stations and at the incident itself, for example replenishment and servicing of equipment, management of inner and outer cordons, environmental protection etc. There are a number of existing units that deliver a variety of logistical equipment from different stations but the review has identified that the provision of a specialised operational logistics function is a gap in WYFRS current capability. The creation of a station with particular responsibility for Logistics would therefore enhance crew capability and provide a more coherent logistical response capability for WYFRS.

Recommendation 5

Outcome = improved capability at reduced cost

7.22. Stanningley to become a specialist Station for the removal and delivery of large quantities of water.

7.22.1. Stanningley station currently has a very mixed allocation of resources including some Foam capability, some logistics equipment and the Hose Laying Unit (HLU) and High Volume Pump (HVP) which are used for delivery/removal of water. The HLU’s are the second most operationally active of all demountable units and provide a valuable water relaying capability. The geographical size of West Yorkshire,

together with a mixture of urbanised and rural risk presents little scope to reduce the existing provision. Both HLU’s are deployed using a prime mover appliance and are currently being provided in a cost-effective manner, with one prime mover being dual crewed with CLG resources (Stanningley) and one being staffed by RDS personnel (Mirfield). The continued location of the HLU at Mirfield was carefully considered in line with the RDS review stream and particularly aspects regarding training and competence. Due to the limited training implications of the Hose Laying Unit, the retention of this capability at Mirfield is acceptable.

Recommendation 6

Outcome = improved capability/coordination

7.23. Addressing deficiencies in specialist skills.

7.23.1. Fire Investigation is a specialised skill currently undertaken by Flexible Duty Officers investigating the major fires and fatal incidents. These officers are supplemented and supported by a number of watch managers working the same duty pattern as operational crews. i.e. two days followed by two nights and four rota days (2x2x4). The review has highlighted that the employment of Watch Managers, conditioned to the 2x2x4 Watch Duty system is not effective in providing adequate cover and delivers a very limited number of productive day shifts for such activities. This results in the need to maintain a large number of flexible duty officers trained to undertake fire investigations. Investigations are totally unplanned and unpredictable, can be very time consuming and can impact significantly on the officers normal work routine. The ability to maintain sufficient numbers of trained and competent officers also presents major challenges and the spread of experience over a large number of officers dilutes the level of expertise. It has therefore been proposed that the shift system, employed for Watch Managers attached to the FI Unit, should be replaced with a flexible system similar to that worked by officers conditioned to the Flexible Duty System.

Recommendation 7

Introduce a specialist Fire Investigation Team to provide virtually continuous availability, with four Watch Managers working a flexible duty system.

Outcome = improved capability and efficiency

7.24. Enhancement of WYFRS Flood Response Capability.

7.24.1. In addition to the themed stations, the review and consultation process has identified a strong desire for WYFRS to provide an enhanced flood rescue capability to support existing capability for flood response, with powered boats and non powered boats being strategically located throughout West Yorkshire based on analysis of the likely flood risk. All partners of the LRF have agreed on the contents of the CRR and the planning assumptions for flooding highlight the scale of the potential for serious and prolonged wide area flooding in West Yorkshire.

7.24.2. There is no single agency given responsibility for flood rescue within the CRR and following unsuccessful attempts to secure funding from Central Government WYFRA requested that officers consider the implications of undertaking such a role on behalf of the LRF. Consultation with the LRF confirmed their agreement that

WYFRS should undertake this role and on 16th October 2009 the Finance and Resources Committee of WYFRA considered proposals to provide an enhanced flood rescue capability. Work is now underway to identify equipment and training to enable WYFRS to enhance its capability as part of a co-ordinated multi-agency and regional approach.

7.24.3. Any wide area flood event will require significant levels of support and consideration has been given to the provision of a range of equipment including spare dry suits, safety equipment etc. The introduction of Wildfire resources into operational service, provided by a series of trailer mounted equipment has rendered the moor land equipment maintained on the Water Support Unit (WSU) as redundant. The removal of the existing moor land fire-fighting equipment from the WSU provides an opportunity to increase the level of water and flood rescue support resources and these will be based at FSHQ.

Recommendation 8

Outcome = improved capability and improved coordination.

7.25. Improve Welfare Facilities on the Fire ground.

7.25.1. Although the Personal Refreshment Unit (PRU) at Featherstone provides a limited welfare capability, it has no toilet or basic hygiene facilities for firefighters to wash, change wet fire kit etc. The provision of a suitable facility for food and other refreshments is also limited. It is desirable to provide such facilities at major and/or protracted incidents and Health and Safety legislation suggests that the provision of adequate welfare facilities in the workplace may extend to a similar provision being required at emergency incidents.

Recommendation 9.

Provide an improved welfare capability for protracted incidents in West Yorkshire with two purpose built vehicles with on-board toilet and hygiene facilities (location to be determined). The Personnel Refreshment Unit (PRU) based at Featherstone to remain in operational service as an additional resource for significant events but without the Prime Mover being immediately available.

Outcome = improved capability and improved conditions for staff

7.26. Introduction of a New Command Unit at Batley.

7.26.1. A separate working group was established to undertake a significant review of the Command Unit (CU) provision which provides a mobile command and control facility for use at major incidents. A new CU is currently being procured and will be located at Batley which will enable the existing Unit to be utilised as a spare appliance and the current spare CU demountable unit based at Shipley will be decommissioned.

Recommendation 10.

Provide the main Incident Command and Control facility in West Yorkshire by the provision of a new Command Unit based at Batley with a spare at Castleford.

Outcome = improved capability and resilience

7.27. The Specials Review has identified a number of changes to the establishment as detailed in the table below.

Post / Section Grade Additional Reduction Hunslet CM -4 Hunslet FF -8 Dewsbury CM -4 Dewsbury FF -8 Cleckheaton WMA TO WMB 2 regrades Cleckheaton FF 12 ND Lead SM 1 Flood Support WM 1 USAR logistics G5 1 support USAR -16 Technicians 15 -40 Overall effect is a loss of 25 posts (see 9.2)

7.28. Monitoring and Review Process. The implementation of the actions arising from the Review of Specialist Appliances and Specialist Resources is an extremely complex project and will take some time to realise its full benefits. This includes the transfers of vehicles and people, procurement of new equipment, training in the use of new equipment and procedures and the adaptation of fire stations and other buildings. A robust project management approach has therefore been adopted with a project manager reporting to the IRMP Programme Board chaired by the Deputy Chief Fire Officer. A key outcome from the project is the delivery of efficiency savings referred to later in this report. Progress against project timescales agreed by the Programme Board will be monitored on a monthly basis. Monitoring of performance of the enhanced capability of the WYFRS specialist appliance and specialist rescue resources will also be a critical element of the project, monitored through debriefs from incidents, training and exercises and improvements to the Operational Assurance processes. Periodic reports will be submitted to Management Board and the Finance and Resources Committee in approximately nine and eighteen months from commencement of the implementation plan with a final report submitted to WYFRA by April 2012. The evaluation will be expressed in terms of a cost/benefit summary with costs expressed in terms of financial efficiency and benefits as performance against the planning assumptions (based on WY Community Risk Register and operational policy and planning assumptions).

7.29. Financial implications

A detailed analysis of the costs of the review is provided in section 9 of this report. However once fully implemented the specials review will deliver ongoing staffing savings of £0.90m per annum. It will be necessary to spend £0.6m capital to purchase the required equipment and this will form part of the 2010/2011 capital plan. In addition there will be one off additional training costs of £0.2m which will be funded out of the current years underspending.

8. REVIEW OF THE WHOLE-TIME DUTY SYSTEM.

8.1. A fundamental review of Duty Systems has been undertaken and a flexible system of crewing all front line emergency fire appliances based on an amalgamation of best practice in other FRS’s was identified as the best solution for WYFRS. The Operational Resource Pool (ORP) Model will release a significant level of resources, whilst maintaining the current operational capacity and capability. One major advantage of the system adopted is that it minimises the disruption for the majority of the Whole-Time employees. In summary, the ORP system provides standard staffing levels across wholetime stations; removes one firefighter post from every wholetime watch; leaves a reserve of one extra firefighter per watch on 2 pump stations; ensures the watch is self sufficient for rostered leave; and creates a central pool of District based staff to cover for absences such as non- rostered leave, sickness absence and off-watch training.

8.2. In April 2009, the Personnel and Training Committee approved the establishment of a Central Staffing Team to manage the system including maintaining standard staffing and operational cover, monitoring and recording sickness, approving leave requests, and managing detached duty moves. By managing sickness absence in a central location, it is anticipated that there will be greater consistency and accuracy in the recording of sickness absence, improvements in the management of longer term sickness through faster referrals to the Occupational Health team and more robust and consistent approach to the challenging of sickness absence.

8.3. The final solution was agreed by the Personnel and Training Committee on 25th September 2009. Formal consultation on the changes proposed by the ORP commenced on 5th January 2009 and a collective agreement with both the Fire Brigades Union and the Fire Officers Association has now been reached. The new system will be introduced on 4th January 2010.

8.4. There are significant financial implications arising from this change in the duty system and once fully implemented the revised structure will deliver approximately £1.76m in efficiencies as previously reported to the Personnel and Training Committee. Although some of the five strategic IRMP reviews have identified areas requiring additional investment, the size of the efficiencies identified by the new duty system is such that it contributes a significant element of the overall savings. The cost of the Central Staffing Team in the current financial year has been met from within existing resources.

8.5. Monitoring and Review Process. The management of the ORP will fall under the responsibility of the Director of Human Resources and a service level agreement has been agreed between the Operations Directorate and Human Resources Directorate. Monitoring will be carried out by the AM Operations Response in conjunction with the GM Human Resources on a monthly basis using the agreed standard staffing model, with performance measured against this model and previous years performance. An evaluation of the success of the system will be undertaken by the Director of Human Resources after 6 and 12 months from implementation and reported to Personnel and Training Committee.

9. FINANCIAL IMPLICATIONS OF THE FIVE REVIEWS

9.1. The overall impact of the 5 IRMP reviews will result in an overall reduction in the cost of the establishment of £864,000 as summarised in the table below. The actual costs and savings provided show the financial impact of the changes in establishment once the review is fully implemented. There will be cases particularly in the Specials Review where savings and in some cases expenditure will only be committed once all the equipment has been purchased. Similarly there will be other posts which can only be filled as other posts become vacant. Whilst it is anticipated that savings in the region of £0.5m will be generated in 2010/2011 it is not anticipated that the full revenue savings will be achieved until the financial year 2012/2013.

9.2. As reported to the Personnel and Training Committee on 25th September 2009 the Shift system review will release 61 posts from the establishment generating savings of £1.76m. At the same Committee meeting, approval was given for the Retained Duty System review at a cost of £1.1m. As these form part of the overall IRMP review the details of these are included in the table below

Review Impact on establishment Financial Impact Command and capacity 11 £636,000 Review of special appliances -25 -£840,000 Retained review 27 +£1,100,000 Whole-time duty system review -64 -£1,760,000

Annual revenue savings -£864,000

9.3. A more detailed explanation of the financial impact of the Command and Capacity review and the Specials Review is provided below.

9.4. Command and Capacity Review. A detailed breakdown of this review showing the cost of each of the posts is provided in appendix 8 to this report. Overall the review will result in the creation of 11 new posts at a cost of £636,000 including overheads although in total 31 posts are effected by this review. In addition, two further SMB posts will require funding on conclusion of the FiReControl Project. A summary of the costs by Directorate is provided below. As a result of the large number of posts affected by the review it is unlikely it will be fully implemented until part way through 2010/2011

Directorate Net Cost increase in Number of Posts Corporate Resources & 3 £84,400 Finance Fire safety 1 £37,300 Human resources 1 £45,800 Operations 6 £468,800 Cost of review 11 £636,300

9.5. A large proportion of this expenditure is for additional uniformed posts to fill the management and command structure. However as mentioned in paragraph 4.15 the impact of the current financial climate and subsequent suspension in recruitment will mean that the vacancies created by filling the uniformed posts internally will not be back filled thus reducing the cost of the review by £0.3m.

9.6. Special Appliances and Specialist Rescue Resources Review. This review will be the most complex to implement as it involves some significant capital investment and upfront training costs as part of the implementation process. I have summarised below the capital cost, the upfront training costs on the ongoing revenue savings below.

9.6.1. Capital. The table below summarises the capital equipment required identifying the capital cost and revenue implications.

Description Capital Cost Revenue Implications 2010/2011 2011/2012 Full year Technical rescue unit £217,000 £4,900 £27,400 £27,400 Replacement pods £44,000 £1,000 £5,600 £5,600 4x4 water rescue vehicles £60,000 £1,400 £7,700 £7,700 Flood equipment (boats) £96,000 £2,300 £12,300 £12,300 Water Rescue (PPE) £30,000 £700 £3,800 £3,800 Equipment for Pods £50,000 £1,200 £6,400 £6,400 USAR equipment (PPE) £20,000 £500 £2,600 £2,600 Building adaptations £100,000 £2,400 £5,600 £5,600 Total £617,000 £14,400 £71,400 £71,400

9.6.2. These schemes will be included in the 2010/2011 approved capital plan with the revenue implications included within the 2010/2011 and future year’s revenue budget.

9.6.3. Training Costs. As part of the implementation of the review it will be necessary to spend £100,000 on water rescue training and a further £96,000 on USAR training for staff prior to implementation. It is anticipated that some of this training will be completed before the end of the current financial year with the USAR training funded from within the existing revenue budget and the water training funded from under-spending in the fire-fighters salaries budget.

9.6.4. Staffing Costs. A detailed breakdown of this review showing the cost of each of the posts is provided in appendix 7 to this report. Overall the review will result in the removal of 25 posts and an overall saving of £930,000 per annum once fully implemented.

9.6.5. Summary. The table below summarises the financial implications of the specials review providing an analysis by financial year. In terms of the staffing implications this can only be an estimate as it is affected by both the receipt of the capital equipment and the retirement profile of the Authority for the removal of the posts.

Description Capital Cost Revenue Implications 2009/2010 2010/2011 2011/2012 Full year Capital financing charges £13,000 £60,000 £60,000 Usar training £48,000 £48,000 Water rescue training £50,000 £50,000 Staffing savings -£500,000 -£900,000 -900,000

Total £98,000 £389,000 £840,000 £840,000

10. FAIRNESS AND EQUALITY IMPLICATIONS

10.1. An Equality Impact Assessment (EIA) has been completed, in consultation with the EDM, for the Response reviews contained within the 2009 IRMP. The EIA’s have been revisited, once clear proposals were established in regard of each respective review.

11. CONCLUSIONS

11.1. All five review streams have made significant progress and a number of proposals have been made for the future strategic management of resources. Although the reviews form part of a three year IRMP action plan they have all been accelerated for completion in 2009/10 due to their strategic importance in relation to the future financial challenges faced by WYFRA. Proposals arising from the RDS and Command and Capacity reviews represent areas of investment required in order to address gaps in current capacity and capability and address important health and safety risks identified as part of the Authority’s risk based planning process. The Duty System and Special Appliances and Specialist Rescue Resources proposals represent significant efficiencies, providing the necessary resources to fund the areas of identified need. The proposals emanating from the Emergency Response review have the potential for delivering efficiencies in future years following some more detailed analytical work as part of a number of important phases of work over the coming years.

11.2. Implementation of the Emergency Response and Special Appliances and Specialist Rescue Resources proposals will lead to a modern fleet of appliances being crewed and deployed in a more efficient manner. The closer alignment of different crewing systems to the local risk will represent a major element of the future strategy for identifying the efficiencies on the scale needed to meet the anticipated challenge of reduced budgets. Not withstanding the potential for these further efficiencies in the future, the overall the combined impact of the five reviews will result in an improved service at significantly reduced cost.

12. RECOMMENDATIONS

12.1. Note the outcome of the review of Duty Systems and the review of the Retained Duty System, both approved by the Personnel and Training Committee on 25th September 2009.

12.2. Approve the recommendations of the review of Managerial Command and Capacity.

12.3. Approve the recommendations from the review of Specialist Appliances and Specialist Rescue Resources

12.4. Approve the proposals for a five stage implementation process for revising emergency cover arrangements as proposed by the review of emergency response provision.

Appendix 1

Summary of Responses to Consultation on Specials Review

Issue Consultee Analysis Action Remarks

Local Authority replied to Leeds City None required None No further action state they had no concerns Council

Appendix 2

List of Consultees for Review of Specialist Appliances and Specialist Resources

Appendix 3 Existing Disposition of Specialist Appliances

Hunslet Cleckheaton

MRU MRU

BAU

USAR

Rothwell Shipley

Dewsbury FCU CU Mirfield

WYs HMU Ossett MSU

IRU DIM WSU

HLU MDU

Stanningley Featherstone

HVPx2 HLU PRU

ISU BFU FMU ISU

Appendix 4 Proposed Dispositions of Specialist Appliances

TECHNICAL RESCUE HAZARDOUS MATERIALS WATER PETRO-CHEMICAL

Cleckheaton Dewsbury Stanningley Hunslet

Odsal Mirfield Batley Castleford

LOGISTICS WATER 31 COMMAND COMMAND RESERVE Appendix 5 Recommendations From the Specials Review

Recommendation 1

Outcome = improved capability at reduced cost

Recommendation 2

Outcome = improved capability and resilience

Recommendation 3

Outcome = improved quality assurance, managerial control and coordination

Recommendation 4

Outcome = improved capability at reduced cost with enhanced coordination

32 Recommendation 5

Outcome = improved capability at reduced cost

Recommendation 6

Outcome = improved capability / coordination

Recommendation 7

Introduce a specialist Fire Investigation Team to provide virtually continuous availability, with four Watch Managers working a flexible duty system.

Outcome = improved capability and efficiency

Recommendation 8

Outcome = improved capability and improved coordination.

33 Recommendation 9.

Outcome = improved capability and improved conditions for staff

Recommendation 10.

Provide the main Incident Command and Control facility in West Yorkshire by the provision of a new Command Unit based at Batley with a spare at Castleford.

34 Appendix 6 Specialist Appliances Glossary

WYFRS Resources

Technical Rescue Vehicle A purpose built vehicle providing a heavy rescue and line capability (TRV) Water Carrying Unit (WCU) A demountable unit which will provide water for moorland incidents

Water Support Unit (WSU) A demountable unit which provides logistical equipment for both water rescue and moorland fire-fighting operations.

Specialist Functions Performed by WYFRS Crews

New Dimension Resources

37 Appendix 8

COMMAND AND CAPACITY REVIEW

COST\ DIRECTORATE POST DESCRIPTION Grade NUMBER SAVING Corporate services Data processing assistant G5 2 £47,910 Corporate services officer G10 1 £37,965 Delete SMA corp services SMA -1 -£48,319 Finance Deputy Finance manager G13 1 £47,455 Fire safety and community relations Partnership Officer G10 1 £37,965 Senior Community safety Officer G13 1 £47,741 Community safety station manager SMA -1 -£48,319 Human resources Fitness advisor G8 1 £32,258 WM training WM -1 -£42,284 Central staffing clerk G5 1 £23,955 TOKO Group Manager GM 1 £72,548 TOKO station manager SM -1 -£54,518 ICS training smb to flexi SMB 1 £62,540 ICS Training sma SMA -1 -£48,319 Operations GM Risk GM 1 £72,548 SM resilience SM 1 £62,540 SM ops learning SM 1 £62,540 WM resilience WM 1 £42,284 SM (Ops Command) SM 2 £125,080 WM (District Support) WM 5 £211,420 Performance admin clerks G4 -5 -£108,429 11 £636,562 SPECIALS REVIEW Firefighter -14 -£492,778 Crew Manager -16 -£656,113 Watch Manager A 1 £42,284 Watch Manager B 2 £93,780 Station Manager B flexi duty 1 £58,270 USAR logistics support G5 1 £23,955 Fire investigation team (ARA) 0 £30,000 -25 -£900,602

38 ITEM No. Fire & Rescue 18th December WYFRA Authority 2009

REPORT OF: DIRECTOR OF OPERATIONS

PURPOSE OF REPORT: IRMP 2009/2012 - THE OUTCOMES OF THE FIVE REVIEW STREAMS

RECOMMENDATIONS: THAT THE FIRE AND RESCUE AUTHORITY:

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

ACCESS CONTACT OFFICER: IRMP Programme Manager

BACKGROUND PAPERS. 1. WYFRS Integrated Risk Management Plan and Action Plan (2009-2012) 2. Fire Research Series Document “Review of Fire and Rescue Service Response Times” (FRS 1/2009)

OPEN TO INSPECTION: Fire Service Headquarters

SUMMARY:

Cont / …..

1. BACKGROUND

• Retained Duty System (RDS) • The Whole Time Duty System • Emergency Response Provision • Specialist Appliances, Equipment and Skills • Managerial and Command Capacity

2. INFORMATION

3. IRMP REVIEW CONSULTATION PROCESS

4. REVIEW OF MANAGERIAL COMMAND AND CAPACITY

Table 1

Humberside 4 4 19 42 88 105 434 North Yorks 3 4 13 17 49 48 203 Average 7 6 27 55 254 229 1107

Key: BM- Brigade Manager AM- Area Manager GM- Group Manager SM- Station Manager WM- Watch Manager CM- Crew Manager FF- Firefighter

NB. The National Role Maps from WM to AM have two pay grades, referred to as A and B.

4.11. Corporate Resources & Finance

Post No’s Grade Req Data Processing Asst 2 G5 Deputy Finance Man 1 G13 Corporate Services Officer 1 G10 Station Manager B -1 SMB

4.12. Fire Safety & Community Relations

Post No’s Req Grade Partnerships Officer 1 G10 Com Safety Manager 1 G13 Station Manager A -1 SMA

4.13. Human Resources

4.14. Operations

Post No’s Grade Req GM Risk 1 GM SM Operational Learning 1 SM SM Resilience 1 SM WM Resilience 1 WM SM (Operational Command) 2 SM WM (Districts) 5 WM

Delete grade posts -5 G5

4.15. Financial implications

Directorate Number of Cost Posts Corporate Resources & 4 £84,400 Finance Fire safety 2 £37,300 Human resources 4 £45,800 Operations 11 £468,800 Cost of review 21 £636,300

4.16. Summary

4.17. Recommendations

4.17.1. That Members note the outcome of the Review of Managerial Command and Capacity and approve an increase on the current establishment as detailed in this section of the report.

5. REVIEW OF THE RETAINED DUTY SYSTEM (RDS)

• Recruitment and retention. • Whole-time support mechanisms. • Relocation of resources. • Training. • Salary schemes and RDS shift systems.

5.2. A detailed report was produced for the Personnel and Training Committee on 25th September 2009 and Members of the Committee approved the following recommendations:

• That the RDS weekly training is increased from three to four hours.

• That evaluation is undertaken at nine months and eighteen months from implementation and that the outcomes are reported to Members.

5.3. As reported to the Personnel and Training Committee on the 25th September 2009, the costs associated with the implementation of the above proposals is £1.1m per annum.

6. REVIEW OF EMERGENCY RESPONSE PROVISION

Phase 1

Phase 2

to reduce risk within these areas (for example concentrated community safety activity as opposed to expensive improvements in emergency response provision).

Phase 4

Phase 5

vii. Investigation of the scope to reduce the weight of response (number and type of vehicles and number of firefighters) which responds to different categories of incident.

6.10. Monitoring and Review Process

7. REVIEW OF SPECIALIST APPLIANCES AND SPECIALIST RESCUE RESOURCES

NB A full Glossary is provided at Appendix 6 for all Specialist Appliances referred to in this report.

“New Dimension resources are intended to be mainstream Fire and Rescue Authority assets”.

7.11. The main outcome of the review has been the development of a range of proposals to rationalise the existing specialist resources and these proposals fall under four main headings:

7.14. The detailed rationale behind each of the associated changes for the themed stations is shown below and Appendices 3 and 4 provide a graphic illustration of the main proposals.

7.17. Dewsbury to become the Hazardous Materials Station supported by Ossett.

Recommendation 1

Outcome = improved capability at reduced cost

7.18. Cleckheaton to become the Technical Rescue Station for West Yorkshire

7.18.8. The new Technical rescue Centre at FSHQ will provide the base for the vast majority of training for USAR teams and the national USAR assets would be stored and maintained at this location

Recommendation 2

Fully mainstream the Governments USAR resources at Cleckheaton into WYFRS technical rescue capability and procure a Technical Rescue Vehicle (TRV) and associated equipment suitable for swift deployment to technical rescue incidents within West Yorkshire. Withdraw both MRUs from operational service and utilise USAR trained staff and resources for all incidents within West Yorkshire requiring technical rescue assistance and expertise. Create the post of Technical Rescue and USAR logistics support at FSHQ to ensure the effective maintenance of equipment. Centralise the future provision of Level 2 line rescue capability with the Technical Rescue Team at Cleckheaton and discontinue the existing Level 2 line rescue provision at Elland and Pontefract. A further Line Rescue capability exists at Rawdon fire station and this will remain in place subject to the successful introduction of the Level 2 line rescue capability and be reviewed after 12 months.

Outcome = improved capability and resilience

7.19. Management Support for New Dimensions Assets.

Recommendation 3

Outcome = improved quality assurance, managerial control and coordination

7.20. Hunslet to become the Specialist Petrochemical Firefighting Station.

Recommendation 4

Outcome = improved capability at reduced cost with enhanced coordination

7.21. Odsal to become a Specialised Logistics Station.

Recommendation 5

Outcome = improved capability at reduced cost

7.22. Stanningley to become a specialist Station for the removal and delivery of large quantities of water.

Recommendation 6

Outcome = improved capability/coordination

7.23. Addressing deficiencies in specialist skills.

Recommendation 7

Introduce a specialist Fire Investigation Team to provide virtually continuous availability, with four Watch Managers working a flexible duty system.

Outcome = improved capability and efficiency

7.24. Enhancement of WYFRS Flood Response Capability.

Recommendation 8

Outcome = improved capability and improved coordination.

7.25. Improve Welfare Facilities on the Fire ground.

Recommendation 9.

Outcome = improved capability and improved conditions for staff

7.26. Introduction of a New Command Unit at Batley.

Recommendation 10.

Provide the main Incident Command and Control facility in West Yorkshire by the provision of a new Command Unit based at Batley with a spare at Castleford.

Outcome = improved capability and resilience

7.27. The Specials Review has identified a number of changes to the establishment as detailed in the table below.

7.29. Financial implications

8. REVIEW OF THE WHOLE-TIME DUTY SYSTEM.

9. FINANCIAL IMPLICATIONS OF THE FIVE REVIEWS

Annual revenue savings -£864,000

9.3. A more detailed explanation of the financial impact of the Command and Capacity review and the Specials Review is provided below.

Directorate Net Cost increase in Number of Posts Corporate Resources & 3 £84,400 Finance Fire safety 1 £37,300 Human resources 1 £45,800 Operations 6 £468,800 Cost of review 11 £636,300

9.6.1. Capital. The table below summarises the capital equipment required identifying the capital cost and revenue implications.

9.6.2. These schemes will be included in the 2010/2011 approved capital plan with the revenue implications included within the 2010/2011 and future year’s revenue budget.

Total £98,000 £389,000 £840,000 £840,000

10. FAIRNESS AND EQUALITY IMPLICATIONS

11. CONCLUSIONS

12. RECOMMENDATIONS

12.1. Note the outcome of the review of Duty Systems and the review of the Retained Duty System, both approved by the Personnel and Training Committee on 25th September 2009.

12.2. Approve the recommendations of the review of Managerial Command and Capacity.

12.3. Approve the recommendations from the review of Specialist Appliances and Specialist Rescue Resources

12.4. Approve the proposals for a five stage implementation process for revising emergency cover arrangements as proposed by the review of emergency response provision.

26 CHIEF EXECUTIVE / CHIEF FIRE OFFICER

FIRE SAFETY & OPERATIONS HUMAN RESOURCES CORPORATE RESOURCES FINANCE ESTABLISHMENT COMMUNITY RELATIONS

DCFO DFS&CR DHR DCS CFinO Total Grade Pre CC New CE/CFO 1 0 1 Grade Pre CC New Grade Pre CC New Grade Pre CC New Grade Pre CC New Grade Pre CC New ACO 3 0 3 ACO 1 1 ACO 1 1 ACO 1 1 BM (DCR) 1 1 BM(CFINO) 1 1 DCR/CFinO 2 0 2 Total 1 1 Total 1 1 Total 1 1 Total 1 0 1 Total 1 0 1 Total 6 0 6 AM 2 2 AM 1 1 AM 1 1 AM 0 0 AM 0 0 AM 4 0 4 GM 9 9 GM 2 2 GM 4 4 GM 0 0 GM 0 0 GM 15 0 15 SM 50 50 SM 4 4 SM 5 5 SM 1 1 SM 0 0 SM 60 0 60 WM 149 1 150 WM 12 12 WM 52 52 WM 0 0 WM 0 0 WM 213 1 214 CM 235 2 237 CM 0 0 CM 43 -12 31 CM 0 0 CM 0 0 CM 278 -10 268 FF 852 10 862 FF 0 0 FF 29 29 FF 1 1 FF 0 0 FF 882 10 892 WT 1297 13 1310 WT 19 0 19 WT 134 -12 122 WT 2 0 2 WT 0 0 0 WT 1452 1 1453 EO 1 1 EO 2 2 EO 2 2 EO 3 3 EO 1 1 EO 9 0 9 G14 0 0 G14 0 0 G14 0 0 G14 3 3 G14 0 0 G14 3 0 3 G13 0 0 G13 2 2 G13 0 0 G13 1 1 G13 1 1 G13 4 0 4 G12 0 0 G12 8 8 G12 2 2 G12 4 4 G12 0 0 G12 14 0 14 G11 0 0 G11 0 0 G11 0 0 G11 4 4 G11 1 1 G11 5 0 5 G10 0 0 G10 12 12 G10 3 3 G10 8 8 G10 0 0 G10 23 0 23 G9 1 1 G9 1 1 G9 6 6 G9 5 5 G9 2 2 G9 15 0 15 G8 1 1 G8 48 48 G8 11 11 G8 7 7 G8 0 0 G8 67 0 67 G7 0 0 G7 10 10 G7 4 4 G7 12 12 G7 1 1 G7 27 0 27 G6 3 3 G6 1 1 G6 9 9 G6 27 27 G6 0 0 G6 40 0 40 G5 7 7 G5 43 43 G5 4 4 G5 14 14 G5 1 1 G5 69 0 69 G4 1 1 G4 1 1 G4 2 2 G4 9 9 G4 2 2 G4 15 0 15 G3 35 35 G3 44 44 G3 8 8 G3 19 19 G3 0 0 G3 106 0 106 G2 4 4 G2 5 5 G2 8 8 G2 8 8 G2 0 0 G2 25 0 25 G1 8 8 G1 0 0 G1 0 0 APP 1 1 G1 0 0 G1 9 0 9 Green 61 0 61 Green 177 0 177 Green 59 0 59 Green 122 122 Green 9 9 Green 431 0 431 WM® 14 -1 13 WM® 0 0 WM® 0 0 WM® 0 0 WM® 0 0 WM® 14 -1 13 CM® 30 -2 28 CM® 0 0 CM® 0 0 CM® 0 0 CM® 0 0 CM® 30 -2 28 FF® 133 -9 124 FF® 0 0 FF® 0 0 FF® 0 0 FF® 0 0 FF® 133 -9 124 Retained 177 -12 165 Retained 0 0 0 Retained 0 0 0 Retained 0 0 0 Retained 0 0 0 Retained 177 -12 165 GM (CON) 2 2 GM (CON) 0 0 GM (CON) 0 0 GM (CON) 0 0 GM (CON) 0 0 GM (CON) 2 0 2 WM (CON) 10 10 WM (CON) 0 0 WM (CON) 0 0 WM (CON) 0 0 WM (CON) 0 0 WM (CON) 10 0 10 CM (CON) 8 8 CM (CON) 0 0 CM (CON) 0 0 CM (CON) 0 0 CM (CON) 0 0 CM (CON) 8 0 8 FF (CON) 32 32 FF (CON) 0 0 FF (CON) 0 0 FF (CON) 0 0 FF (CON) 0 0 FF (CON) 32 0 32 MACC 52 52 MACC 0 0 MACC 0 0 MACC 0 0 MACC 0 0 MACC 52 0 52 TOTALS 1536 1 1537 TOTALS 197 0 197 TOTALS 194 -12 182 TOTALS 125 0 125 TOTALS 9 0 10 TOTALS 2066 -11 2055 Cell: C17 Comment: Martyn Redfearn: +1 WM Norm

Cell: C18 Comment: Martyn Redfearn: +2 CMs

Cell: M18 Comment: Martyn Redfearn: ‐12 CM (OSUs)

Cell: C19 Comment: Martyn Redfearn: +10 FFs WYFRA FULL AUTHORITY 18 December ITEM No. 2009

REPORT OF: DIRECTOR OF OPERATIONS

PURPOSE OF REPORT: FIRE AND RESCUE PROVISION FOR THE NORMANTON AREA

RECOMMENDATIONS: THAT MEMBERS APPROVE THE PROPOSALS TO DEVELOP NORMANTON FIRE STATION ON THE EXISTING SITE AND INTRODUCE A DAY CREWING (CLOSE CALL) SYSTEM IN ACCORDANCE WITH THE PRINCIPLES OUTLINED IN THIS REPORT.

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY:

ACCESS CONTACT OFFICER: SM D SMALLEY

BACKGROUND PAPERS WYFRS IRMP 4 (2007/2008)

SUMMARY:

This report provides Members with details of revised proposals for fire cover in the Normanton area by replacing the current Retained Duty System with a Close Call Crewing System based on the current day crewing system that will improve attendance times for the Normanton area and provide enhanced response to the surrounding towns and villages in a cost effective manner. This proposal is a minor revision to the original proposals that were put before the Executive Committee on the 10th July 2009 and takes into account points raised during the formal consultation process.

1. BACKGROUND

1.1. West Yorkshire currently provides emergency cover throughout the county from 48 fire stations staffed by fire-fighters conditioned to three different duty systems. Typically stations with higher risk profiles and activity levels are staffed by firefighters conditioned to the whole-time 2x2x4 shift based system, whereas areas with lower risk and activity profiles are staffed by fire-fighters conditioned to either the whole-time day-crewed or part-time Retained Duty System (RDS).

1.2. The area of Normanton is currently provided with a single pumping appliance fire station which is staffed by fire-fighters conditioned to the RDS. Staff members currently provide an operational response from their respective home/work localities.

1.3. On 19th December 2006 a series of proposals were submitted to the Fire Authority to improve the emergency cover provision for North East Wakefield, commonly referred to as the “Five Towns” area. These proposals recommended that Normanton fire station should be upgraded from being an RDS staffed fire station to one staffed by whole-time fire-fighters conditioned to the shift duty system and that the fire station should be re-located to the Normanton Industrial Estate. Procurement of a suitable site in connection with the above proposals has proved to be problematic and was ultimately not well supported by the local community. These challenges, coupled with the length of time that has elapsed since the original proposals were made, have resulted in the necessity to modify these proposals.

1.4. Following extensive analysis, proposals were developed to modify the original plans and on the 10th of July 2009 a series of recommendations were brought before the Executive Committee which sought approval for the commencement of formal limited consultation on changes at Normanton and also to authorise the commencement of formal negotiations with the Fire Brigades Union to introduce a Peak Activity Crewing (PAC) model. This system involves wholetime firefighters working at the times of day when most fires are likely to occur (approximately 11am to 11pm) and then the rest of the time, during periods of low activity, firefighters provide cover on the retained duty system. The rationale for these modifications to the original proposals that was put before the Executive Committee are reproduced in the Information section below.

2. INFORMATION

2.1. The original 2006 business case for upgrading Normanton fire station from RDS to whole-time shift based staffing was based on the following information and assumptions:

The Five Towns area was undergoing regeneration and it was anticipated that this would encourage further investment across the area. Operational incidents within Normanton increased by 27% during 2005. The provision of a whole-time staffed pumping appliance would provide improved appliance availability and a swifter response to incidents. An improved capacity to undertake risk reduction activities by the provision of whole-time resources. Improvement of response times into the Altofts and Ellentrees areas of the town.

2.2. Over the last 18 months WYFRS has invested significantly in the development of sophisticated risk and resource modelling software tools which have been used in conjunction with analysis of operational activity levels, census data and commercial premise risk information to provide an overall risk profile for the area. The new risk modelling software divides the adult population into a number of different socio- demographic categories and this, combined with an analysis of accidental dwelling fire data for 2007 and 2008 has identified that there are six main lifestyle categories within West Yorkshire which are most at risk from accidental dwelling fires.

2.3. The risk reduction and targeted community safety activities conducted across the county have led to a general reduction in risk and associated operational activity levels particularly in relation to dwelling fires. This reduction is particularly apparent in the Normanton area (see 3.5 below).

3. CURRENT RISK PROFILE FOR NORMANTON

3.1. Normanton fire station predominantly serves the residential areas of Normanton and Altofts but also provides fire and rescue coverage for the industrial and warehousing sites located at Wakefield Europort, adjacent to the M62 motorway. In the overall fire cover strategy for the “Five Towns” area the fire station also provides back up into the surrounding towns for larger incidents or simultaneous incidents.

3.2. Normanton fire station serves an area where there are approximately 8,900 dwellings, with approximately 6200 of these being in the Normanton ward. The tenure classification for dwellings within Normanton is as follows:

Just over 6,000 are classed as home ownership. Approximately 2,350 are rented from Local Authority. Just over 330 are privately rented. With the remainder being classed as “other” dwellings.

3.3. The station area contains a total of approximately 570 commercial, industrial and agricultural risks. The Fire Services Emergency Cover (FSEC) toolkit used by WYFRS as one of its analytical tools contains information on the majority of these and classifies them as follows:

14 Care Homes One Hotel 8 Public Buildings 36 Licensed premises. 79 Schools (inclusive of nurseries and child minder facilities). 142 Shops. 122 Factories/Warehouses. 100 Offices. 11 High Rise buildings. 13 Flats and houses of multiple occupation.

3.4. The area covered by Normanton fire station contains a low predominance of the six socio demographic groups most at risk from accidental dwelling fires in West Yorkshire and the existing RDS response footprint for the fire station covers a significant proportion of these. Analysis of operational activity levels within Normanton confirm the following observations :

Dwelling fires have reduced by 54% since 2006. Building fires have decreased by 23% since 2006. Secondary fires (grass & rubbish) have decreased 39% since 2006. The occurrence of road traffic collisions has risen by 4 since 2006. • Despite increase in vehicle fires and false alarms, overall operational incidents within the area have decreased since 2006. (Appendix 1).

3.5. The Fire and Rescue Service Partnership Working Toolkit for Local Area Agreements (LAA) published by CLG in February 2008 outlines two separate approaches for benchmarking local rates of dwelling fires, these being:

To compare local rates with the national average. By using the fire rate benchmarks contained within the Fire Services Emergency Cover (FSEC) toolkit.

3.6. The national average rate of dwelling fires for England (quoted in the LAA toolkit) is 925 per million population, compared with the 5-year average for Normanton of 668.54. When compared against the FSEC benchmark rates for dwelling fires, the average rate for Normanton is within the “Very low” category.

3.7. The following table provides a comparison of Normanton’s annual (2008) operational incident activity levels against the other RDS and day-crewed fire station areas within the county. Day-crewed fire stations are shaded grey.

Station Area Total Incidents Dwelling Fires RTC’s Featherstone 388 7 6 Hemsworth 365 6 12 Normanton 313 6 9 Holmfirth 250 9 15 Mirfield 235 8 8 Slaithwaite 217 10 9 Otley 211 2 8 Ilkley 204 3 9 Skelmanthorpe 166 7 15 Silsden 160 9 4 Mytholmroyd 131 6 9 Meltham 119 2 4 Haworth 82 7 4 Marsden 52 1 4 Todmorden 223 8 20 Wetherby 255 11 24 Knottingley 372 13 5

3.8. The table illustrates that Normanton has comparable incident activity levels to those of many other fire stations staffed by RDS fire-fighters and has a lower predominance of dwelling fire incidents than areas provided with day-crewed resources.

3.9. Further analysis of incident activity levels has been completed to identify specific periods during each day/night where operational activity levels are more predominant within the Normanton area. The chart at Appendix 2 provides a five- year operational activity profile by hour of day and identifies that the peak operational activity occurs in the twelve hours between 11am and 11pm (70% of all incidents) with a significant difference between this period and the much quieter period between 11pm and 11am.(30% of all incidents)

4. RESPONSE CAPABILITIES AND PERFORMANCE

4.1. The 2007/08 IRMP established a benchmark average response time (based on 2003 performance) of 5 minutes and 41 seconds for wholetime fire appliances and this is used to provide footprints (isochrones) on maps showing turnout areas where this attendance time can be achieved. Due to the time taken for RDS staff to respond to the station before turning out this footprint is based on a 2 minutes and 41 seconds emergency response time. The emergency response isochrone for Normanton identifies that there are certain areas of Normanton which are not currently covered by this footprint (although Members are referred back to the risk profile of Normanton which confirms the area as very low risk).

4.2. A new link road, connecting Normanton bypass to Leeds Road at Glasshoughton was completed on 1st April 2009. The addition of this carriageway has facilitated an improved emergency response into Normanton from Castleford and the respective footprint for Castleford fire station now borders the corresponding footprint for Normanton.

4.3. The current pumping appliance availability level for Normanton is 85% and there are currently 13 RDS fire-fighters based at the fire station. The chart provided at Appendix 3 identifies that the fire station maintains the fourth lowest pumping appliance availability level of our 14 RDS fire stations. As with most RDS stations, the lack of availability is most problematic during the daytime, when RDS personnel are engaged in their primary employment. (The 15% where there is no availability at Normanton equates to 54 days where the appliance is not available to attend fire calls)

4.4. The average attendance time for the Normanton area during 2008 (from alerting RDS personnel to arriving at the incident) was 7 minutes, 41 seconds and when this appliance is unavailable, supporting resources from Castleford, Pontefract and Wakefield provide fire and rescue cover for the area.

5. REVISIONS TO FIVE TOWNS PROPOSALS

5.1. In light of the low levels of operational activity (and reducing since 2006) and low risk levels within the Normanton area it is no longer considered appropriate to upgrade the fire station from being an RDS staffed fire station to one staffed by whole-time fire-fighters conditioned to the 2x2x4 duty shift duty system as was originally planned as part of the “Five Towns” project. Also, in light of the difficulties associated with identifying an appropriate site for the new fire station and the improved road network within the area it is now more appropriate to redevelop the existing Normanton fire station site.

5.2. If the Normanton area was being considered in isolation of the surrounding towns, the risk and activity levels could no longer justify any upgrade from the existing RDS duty system to wholetime, however, when taking into account the “Five Towns” area and the imminent migration of Castleford and Pontefract fire stations to new sites there is justification for considering an alternative wholetime duty system for Normanton to improve emergency response times within the Normanton and surrounding area, but only where this could be achieved in a more cost effective way.

5.3. During the initial consultation, which was based on the PAC model, Normanton Town Council wholeheartedly supported the proposals but concerns were raised by the Fire Brigades Union (FBU) and a sub group of the Wakefield Crime and Community Safety Overview Committee regarding the proposals to change from a wholetime shift station to a PAC station and whether the level of consultation was sufficiently wide. Having regard to these concerns, a number of officers met first with the Leader of Wakefield District Council and later, with the full Crime and Community Safety Overview Committee, to present the business case for the changes (see also para 6.3).

5.4. As a result of the consultation process and having regard to the concerns raised, some minor revisions have now been made to the proposals. With the availability of more sophisticated risk and resource modelling software and more flexible approaches to conditions of employment now available, it is now possible to match the availability of staff to the risk and demand profiles in the area in a more cost effective way, particularly in station areas where risk and operational activity is low.

5.5. It is therefore now proposed that a variation on the current Day Crewing system is introduced whereby crews will provide wholetime cover during the times of peak activity and respond from accommodation close by, outside of the peak activity hours.

5.6. The proposed Day Crewing (Close Call) model for Normanton is based on the existing Day Crewing model and similar to the Low Level Activity and Risk (LLAR) model recently introduced by Merseyside Fire and Rescue Authority (MFRS) and cited as best practice in the Audit Commission report “Rising to the Challenge”. The model provides fire cover equal to that provided by whole time stations working the 2x2x4 system but with a reduced establishment.

5.7. On 15th May 2006, the Technical Advisory Panel of the National Joint Council for Local Authority Fire Brigades concluded that the LLAR duty system was compatible with the deployment of resources that the Authority has determined is necessary to implement its IRMP and, subject to one exception (see below - Equality and Fairness Implications), is based on the 4 principles set out in the Grey Book, Section 4, Part A, paragraph 3. The system now operates successfully at a number of stations across MFRS.

5.8. Consultation with personnel at Normanton has taken place from the early stages of the project to ensure their views and concerns could be addressed. As part of this open discussion a number of Fire-fighters from Normanton have visited Allerton fire station in Merseyside to see first hand the how a similar crewing system works. They were given the opportunity to discuss all aspects of the system with fire fighters from Allerton and have indicated that they have been impressed by the system in relation to its flexible approach to crewing and by how family friendly the system can be.

5.9. The Human Resources Directorate have now been tasked with developing a suitable duty system for WYFRS. Although the specifics in regard to the crewing systems are still in the planning stages, the system being developed is based on an establishment of 13 staff working an 11 or 12 hour shift and the provision of a close call response during off duty hours when they are available on call from a purpose built accommodation block, a converted residential property, or their own accommodation should this be sufficiently close to permit attendance within the prescribed times.

5.10. In addition to the issues associated with Normanton fire Station, the consultation process for the 2007/08 IRMP “Five Towns” proposals highlighted certain concerns expressed by Fire and Rescue Authority Members in relation to overall relocation of resources in the Wakefield District and these concerns have been addressed through the proposal to allocate a pumping appliance as a strategic resource to be available during periods of maximum demand (spate conditions). It is proposed that this appliance is located at the new Normanton fire station and crewed as required by utilising the recall to duty policy.

6. CONSULTATION

6.1. A series of guidance notes were issued by CLG during 2003 and provide guidance upon the consultation process to be adopted by FRS’s in respect of their IRMP proposals and Action Plans. This guidance forms the basis upon which WYFRS consults with its stakeholders.

6.2. Consultation has taken place with Wakefield MDC (Planning), the Highways Agency, Normanton Town Council, The Leader of Wakefield Council, The Wakefield Crime and Community Safety Overview Committee, Wakefield Scrutiny Committee and the FBU

6.3. On the 21st of September in Wakefield at the meeting between WYFRS and the Wakefield Crime and Community Safety Overview Committee (including representatives from the Scrutiny Committee) Officers presented the business case for the proposed changes and the following paragraph taken from the approved minutes of that meeting summarised the outcome.

‘A Member of the Committee suggested that the consultation that had taken place was adequate in the given situation and this was agreed by other Members of the Committee.’

6.4. Consultation and negotiation with the FBU has highlighted some concerns in relation to the length of the day duty but negotiations remain extremely constructive. Further meetings between the representative bodies and the HR Directorate are being held on a regular basis and Members will be advised of progress verbally at the Authority meeting on the 18th December.

7. FINANCIAL IMPLICATIONS

7.1. Revenue Implications

As explained in the body of the report the original proposal was to staff Normanton as a whole time station which under the revised shift system would require 24 staff at a cost of £0.9m. The revised proposal will only require 13 staff and would result in a saving of around £0.25m per annum once fully implemented.

7.2. Capital Implications

In terms of the capital implications there will be saving on the cost of Land of £0.15m from the original site. In addition there will be savings in the overall building costs as the station itself will be smaller than originally planned. This saving will be used to fund the cost of any additional accommodation requirements.

8. EQUALITY AND FAIRNESS IMPLICATIONS

8.1 The Equality Impact Assessment has identified possible adverse impact under gender, primarily focused around childcare/caring responsibilities for women operational staff although this is offset because alternative duty systems are available at other fire stations.

9. CONCLUSIONS

9.1. The proposals outlined for Normanton fire station provide a fire and rescue service for the Normanton and surrounding area in a very cost effective way based on a sound risk based methodology which effectively balances risk levels with efficiency.

9.2. The fire and rescue response for this area will be improved by the provision of wholetime fire-fighters conditioned to Close Call crewing system based on a revised wholetime day-crewing system to ensure firefighters are immediately available to provide cover during the day and night.

9.3. The performance of risk reduction activities over the past few years has had a significant impact in the area and this work can be continued and expanded in the future with wholetime firefighters being available to undertake this work.

10. RECOMMENDATIONS

10.1. That Members approve the proposals to develop Normanton fire station on the existing site and introduce a Day Crewing (Close Call) System in accordance with the principles outlined in this report.

Appendix 1

Appendix 2

Normanton 5 Year Incident Activity Levels (2004-2008)

140

120

100

40 Number of Incidents of Number 20

0 0000-0059 0100-0159 0200-0259 0300-0359 0400-0459 0500-0559 0600-0659 0700-0759 0800-0859 0900-0959 1000-1059 1100-1159 1200-1259 1300-1359 1400-1459 1500-1559 1600-1659 1700-1759 1800-1859 1900-1959 2000-2059 2100-2159 2200-2259 2300-2359 Time Appendix 3

RDS Fire Station Appliance Availability Levels

100.00% 90.00% 80.00% 70.00% 60.00% 50.00% 40.00% 30.00% 20.00% 10.00%

Percentage Availability 0.00% Ilkley Otley Mirfield Silsden Haworth Meltham Marsden Holmfirth Slaithwaite Normanton Hemsworth Mytholmroyd Featherstone Skelmanthorpe Station

th 19 November 2009 Chief Fire Officers Association 9-11 Pebble Close Amington Shona Dunn Tamworth Director Fire and Resilience Staffordshire Communities and Local Government B77 4RD 3/B5, Eland House Bressenden Place Telephone +44 (0) 1827 302300 London Fax +44 (0) 1827 302399 SW1E 5DU www.cfoa.org.uk

Dear Shona

New Dimensions Asset Transfer

Following the issue of FSC 59/2009 seeking agreement from England’s Fire & Rescue Authorities to the transfer of ownership of New Dimensions Assets by 31 December 2009, Chief Officers are preparing to advise their Authorities, in consultation with legal advisers, on whether to sign the Transfer Agreement and associated contracts. The Chief Fire Officers’ Association and the Fire Lawyers Network share a number of ongoing concerns. We would seek clarification on these so that we might reflect this in our advice and guidance to our members to assist the process of their decision making.

Firstly CFOA acknowledges the positive and constructive partnership now in place with your department and the LGA to deliver a sector led assurance framework for the New Dimensions capability. The establishment of the CFOA National Resilience company signifies an innovative approach to delivering a shared responsibility for all stakeholders. It will assure the operational capability of these critical assets now that they are in service and operating in steady state and the fact that this assurance is led by the Fire & Rescue profession itself helps to build stakeholder confidence. I am sure this is a model will that will reap benefits and can be replicated in the future.

Notwithstanding this assurance framework, there remain distinct contingent risks facing Fire & Rescue Services should they now seek to take on the ownership of the New Dimensions Assets which have not been adequately covered in CLG’s responses to the consultation thus far. It is these risks that CFOA would seek to highlight and request clarification and, hopefully, reassurance. CFOA members remain concerned about the extent of financial and contractual liabilities that Authorities would be exposed to.

The following summarise the issues:

1. FRAs will have no control over the level of costs apportioned to them and, if there is a dispute on the level of charges, will have no right to claim directly against the Contractor. What mechanisms will be in place to protect the FRAs against these risks?

2. FRAs have no rights to terminate the National Contract or its application to the specific FRA. What mechanism will be in place to hold the contractor properly to account?

The Chief Fire Officers’ Association Registered in England as a Limited Company: No 3677186 Registered Charity No 1074071 9-11 Pebble Close, Amington, Tamworth, Staffordshire B77 4RD. Telephone +44 (0)1827 302300 Fax +44 (0)1827 302399 www.cfoa.org.uk 3. National risks will inevitably change over time and these assets will continue, first and foremost, to provide national resilience. CFOA maintains that the financial costs of mitigating national risks should not fall to local Services. What assurance can be given that ongoing improvements or additions do not drive up the cost for those obligated to pay?

4. The Transfer Agreement is as stated a Transfer of Function not a Transfer of Assets. This confers specific duties on those FRAs that are currently hosting New Dimensions assets that are designated for use in the event of widespread flooding which are currently not covered by any Statutory Instrument. This is not the case for the USAR and CBRN assets which are covered by the Emergencies Order 2007 (SI 2007 No 735). Why is no similar Statutory Instrument to be put in place in relation to flood response and rescue and if not how do you propose to limit the liability for FRAs in this respect?

5. It is unclear how CLG intends to manage the New Dimensions assets if the majority of FRAs decline the option to sign the Transfer Agreement. What are your contingency proposals in this regard?

6. There are grants currently in place for those FRAs hosting USAR assets to cover staffing. There is no certainty on whether these grants will continue. If there are no guarantees, does CLG accept that this capability will be lost?

Given the current pressures on public sector finances which are likely to continue for a number of years, CFOA remains concerned that

a. The new burdens funding to FRAs will be inadequate to cover the full and true costs of maintaining, staffing, refreshing and equipping the New Dimensions assets.

b. There will be a lack of transparency on the full costs and the funding to cover them if the funding is subsumed within the RSG or into any area based grant mechanism. There are also specific and significant impacts on those FRAs that are currently operating ‘at the floor’.

c. There is no clarity or certainty of future funding for the national assurance function. FRAs would not be in a position to fund this resource in the future. If CLG could give the same assurance as is now in place for the funding set aside for the 16 year maintenance contract then this would allay a number of concerns. CFOA, through the National Resilience Board, has continually stressed that if the funding available does not maintain parity with actual costs then it would be deemed that the risk assessment had dropped and therefore the state of readiness and capability would be similarly downgraded.

As you will appreciate, many Chief Officers are preparing medium term financial plans in readiness for significant grant cuts. It is clear that local response and risk mitigation will take priority. At a time when national civil resilience is a critical component of policy development it appears contradictory that financial and contractual certainty and guarantees cannot be made in relation to these front line defence assets.

The Chief Fire Officers’ Association Registered in England as a Limited Company: No 3677186 Registered Charity No 1074071 9-11 Pebble Close, Amington, Tamworth, Staffordshire B77 4RD. Telephone +44 (0)1827 302300 Fax +44 (0)1827 302399 www.cfoa.org.uk Whilst the benefits to communities across the country of a National Resilience programme are many fold, and the investment in the programme by Government to date is acknowledged, there needs to be complete transparency in relation to the currently hidden and somewhat substantial ongoing costs and liabilities.

FRAs are now undertaking their own due diligence through their own legal advisers. Clearly we are aware that many of these points and queries have already been raised but many authorities remain dissatisfied with the response given so far and have requested that they are aired again. It would therefore be helpful if you could respond to this letter to provide more comprehensive reassurance than has been articulated to date.

I would reiterate that these questions have been raised in order to find solutions to, or seek clarification for, matters which are of considerable concern to FRSs. Whilst these concerns continue to be raised, progress on a matter of enormous local and national importance will remain slow, protracted and potentially at risk.

Yours sincerely

John Bonney CFOA President

CLG response to the questions posed by CFO - Transfer of Ownership of New Dimension Assets

The WYFRA paper regarding the Transfer of ND Assets refers to correspondence between CFOA and CLG.

CLG published their response on 15th December 2009.

The detail of that response is contained within the body of this Appendix. Below is a summary of the key points.

Item 4 In terms of paying bills for unfair wear and tear, an approval process is currently in place. Costs above £1000 require the approval of the CLG Policy Team. Firebuy have made it clear that they will seek similar arrangements with FRAs post-transfer. Currently it is not clear what that process will be. WYFRS will seek clarification regarding the future process.

Item 6 The National Resilience Board will be required to be consulted regarding any proposed transfer of assets from one FRS to another FRS. It is not anticipated that such a transfer would be required by WYFRS, however future IRMP planning would need to consider such consultation.

Item 10 The Transfer is a transfer of assets (which for accounting purposes is described as a Transfer of Function).

CLG have made it clear that this is not a transfer of function in relation to existing powers and duties.

“To be clear, the intention of the Department is for FRAs to own the assets and have an obligation to use the national maintenance contract. There is no intention by Government to impose or confer statutory duties of any sort on the FRAs through this transfer. Any such duties in the future would be for the appropriate statutory instruments.”

15 December 2009

John Bonney CFOA President Chief Fire Officer’s Association 9-11 Pebble Close Amington Tamworth Staffordshire B77 4RD

Dear John,

Transfer of Ownership of New Dimension Assets

Thank you for your letter dated 17 November to Shona Dunn, regarding concerns raised with you about transfer of New Dimensions assets. As you are aware, I am covering for Shona until her return in the new year.

I have waited before responding until our New Dimension policy team had the opportunity to discuss your concerns with Susan Johnson for CFOA, David Wright for the Fire Lawyers Network, and Terry Standing and Jon Hall for the National Resilience Board, which took place on 9 December.

Firstly, I should say that we do understand CFOA’s concerns about the current economic climate, and that FRAs will need to look very closely at the pressures and risks they face. For our part, the Department has given a high priority to the resilience agenda since the beginning of the Fire and Resilience programme in 2002, and will continue to do so in the future.

As authorities consider signing up to the New Dimensions transfer, with a natural focus on the funding arrangements, it is important not to underplay the importance of the other two elements of the arrangements which the Department, working closely with the sector, has put in place to safeguard the new capabilities in the long term: the national maintenance contract and the Assurance Body headed up by the National Resilience Board. As you would expect the National Resilience Board has previously debated to successful conclusion many of the points you raise and the answers to some of the specific concerns you raise lie within these structures.

Enclosed at Annex A is a list of the concerns in the order you raised them in your letter along with the Department’s responses. I do hope this addresses your points and that, consequently, we can look forward to receiving responses from all FRAs in line with the original request. Clearly we seek a positive response, and I would hope that given the further constructive discussions which have taken place recently, you would feel able to echo this sentiment in advice to the FRS.

I copy this letter, as I understand you did yours, to all Chief Fire Officers and to the Chair of the Fire Lawyers’ Network.

Yours sincerely,

SANDY BISHOP Acting Director of Fire and Resilience

ANNEX A – Detailed responses to the points raised in John Bonney’s letter dated 17 November 2009 on the transfer of ownership of New Dimension assets

Control FRAs have over the level of costs apportioned to them under the maintenance contract and how FRAs are protected against the risks 1. The costs which fall on FRAs are: • USAR costs including crewing, some consumables, PPE and dogs for which FRAs are grant-funded; • Training costs, some of which are grant funded to FRAs, and some (where it makes sense to have a single purchaser) given to the Assurance Body; • Fixed costs of the maintenance contract – CLG has committed to fund these fixed costs under the contract – currently directly to the contractor, but after transfer of assets to be paid directly by FRAs and grant funded; • Consumables costs (except certain items funded for USAR above) – paid directly by CLG to the contractor, in the future planned to be paid directly by FRAs and grant-funded. These costs are within FRAs’ control. • Unfair wear and tear (avoidable costs) – to be borne by FRAs at their own cost under the recharging policy which was issued on 30 November. To put in context, these costs, which also are within FRAs’ control, amounted to £118k in the first 12 months of the contract (i.e. that is the amount all English FRAs together would have had to pay if a recharging policy had been in place for that first year). These costs may go up or down in the future – see Section 5 of the recharging circular (FSC 72/2009) – but give an indicator of the likely order of costs.

2. From the above list, the main cost risks an FRA would be exposed to are consumables and unfair wear and tear – which they themselves are in a position to control.

Rights to terminate the national maintenance contract, and holding the contractor to account 3. The point of the national maintenance contract is to ensure continued interoperability, resilience, convenience and economies of scale. By its nature the contract is collective, and Firebuy is the contracting authority with VT Group (the contractor) and therefore the terms of the Prime Contract can only be enforced directly by Firebuy or VT. The contract is closely managed by Firebuy and the National Resilience Board on the FRSs’ behalf, and the NRB hosts quarterly meetings with Firebuy and the contractor to address issues raised by FRSs. In addition Firebuy are required to provide a report to the National Resilience Board on the contract performance at each of its regular meetings.

4. In terms of paying bills for unfair wear and tear under the contract, we can offer some reassurance by the way the process has operated in its first year. The Department has not sought to approve every single bill for repairs – there are thousands of these in a year. Under the arrangement we have with Firebuy and the contractor, for costs up to £250, the contractor goes ahead and does the work. Costs from £250-£1000 are subject to approval by Firebuy. Costs above £1000 require approval by the CLG policy team. This has worked well for the Department and given us the level of assurance we require. Firebuy have made clear they will seek similar arrangements with FRAs post transfer, and will work with authorities to arrive at a process which gives the required assurance without being overly-burdensome or delaying every repair unduly to await permissions.

5. Further, with a year’s worth of monthly statistics on costs, Firebuy is in a position to act as an ‘intelligent client’ and is doing so from a national perspective, to ensure best value for FRSs, for example it is able to spot the more frequent recurring costs, and consider how these may be addressed and potentially reduced in future – such as courier costs for parts which may be more sensibly changed at regular servicing thereby reducing costs. On this basis Firebuy is working on behalf of the FRS customer to try and reduce costs wherever able. In addition, it is fair to say that the contractor is consistently achieving its performance standards, and the feedback from FRSs is positive. There is no reason at this stage to envisage a scenario that would arise where the contractor defaults on the contract to the extent that termination would be justified. However, if any specific FRS has any concerns as to performance issues, then they should of course be fed through to Firebuy and the National Resilience Board, who will be receptive to such concerns, and will work towards satisfactory resolution of such issues as they share a common interest in ensuring that the respective performance requirements are met.

6. With regard to termination of the arrangements by a specific FRS, where a FRS has taken ownership of relevant New Dimension assets, and responsibility for associated maintenance payments, but is experiencing genuine financial problems, or is making structural arrangements within the service which causes difficulty for the FRS in supporting those arrangements, then an approach should be made to the National Resilience Board to explore the prospect of the relevant assets being transferred to another FRS.

Risks change over time and improvements to kit may drive up costs to FRAs 7. In the first instance it is worth noting that the National Resilience Board is funded by CLG around £1.5m pa for in-year necessary improvements, and promotes the interests of FRS. Whilst we cannot commit future Parliaments, we envisage ‘major refreshes’ every 5-6 years which would look at major changes to the capabilities which may be required by changing Government requirements (i.e. assessment of top risks changes).

8. The National Resilience Board has very clear procedure in place to deal with asset refresh both in turns of minor and major refresh. This is a good example of why we feel it is in the interest of FRA’s to accept transfer of assets as opposed to other third party options (see below). To support this process the National Resilience Board report on an annual basis to CLG on FRS National Resilience, capability gaps and major refresh requirements. Of course major refreshes are in the context of a spending review so that Government can seek the money for changes required, including any impact on contracted maintenance costs.

9. Government is fully committed to the New Burdens rules as it has been for many years – if a Government policy or action means increasing costs to local authorities, including FRAs, then central Government funds that increase in costs. Government believes that the general track record, the record on New Dimensions, and the Assurance Body itself, should provide reassurance.

Transfer of function, and position on duties on FRS regarding flood response. 10. Transfer of function is a classification given by HM Treasury for accounting purposes. There is an important practical point for the Department in that if the transfer were not designated a transfer of function, we would have to account for the assets’ capital value (i.e. the Department would need to cover the current capital value of the assets owing to the loss of this value on the Department accounts as a result of this transfer). The transfer of function mechanism enables CLG to transfer the assets without that accounting treatment and has no impact on the powers and duties which FRS already has. To be clear, the intention of the Department is for FRAs to own the assets and have an obligation to use the national maintenance contract. There is no intention by Government to impose or confer statutory duties of any sort on the FRAs through this transfer. Any such duties in the future would be for the appropriate statutory instruments.

What if most FRAs don’t agree to the transfer, and could the assets they host be taken away? 11. We do recognise the wish by FRAs for as much certainty as possible, and hence the natural desire to know in advance what may happen if an FRA does not agree transfer. However, the premise of the New Dimensions programme since its inception has been that the FRS would take ownership of the assets they host after they were delivered. This was supported by LGA and CFOA at the beginning of the project, and the principle was reaffirmed as recently as last summer by the large majority of FRSs responding to consultation. We remain strongly of the view that the best outcome is for FRAs to take ownership, putting ownership with use. To assist this we have ensured, in conjunction with CFOA, that the necessary support is in place. To this end we have delivered a national maintenance contract, appropriate funding streams, and a robust National Resilience Board providing both governance and assurance, all elements which stakeholders agreed would be essential to secure asset transfer. Given delivery of these, we are consequently looking to complete the final element of asset transfer itself.

12. If we were in the unfortunate position that the majority of authorities did not agree transfer, then we should be clear that there is no option for CLG to retain ownership of a large fleet of specialist vehicles for the longer term. In such a case, the Department would look to other options for fleet ownership, but I would emphasise that for the assets to move to a third party rather than to the fire community would feel like a missed opportunity.

13. Should the transfer to FRAs not happen, at this stage, it is difficult to indicate whether this will have any bearing on the placement of the assets. Alternatively, we may be in a situation where the majority of FRAs do sign up to the transfer but that a few FRAs decline and on this basis, we may consider whether the assets hosted by the latter FRAs should be relocated. In either of these scenarios however we would work with the National Resilience Board and the authority concerned to ensure that the assets are positioned in locations which preserve the robustness of national resilience. I would note that in the roll-out of the assets over the last few years, the National Resilience Board, and its predecessor Transition Board, dealt with a number of difficult positioning issues, which were sorted out pragmatically, reasonably and satisfactorily. We would expect that future relocation issues are likely to arise from time to time as part of normal business, and the National Resilience Board would work with the brigades concerned in a similar way.

14. I would add at this point, in the interests of clarity, that it would not be open for an FRS to choose to accept some of the New Dimension assets, (for example those which it more regularly uses) whilst not accepting transfer of the remainder of the assets which it currently hosts.

No guarantees for future USAR crewing grants 15. As stated above, the Department cannot commit future Parliaments. Nevertheless, the Government is fully committed to the New Burdens rules. We would point to the Department’s record thus far on providing new burdens funding for both New Dimensions and in other areas. For New Dimensions alone this has amounted to nearly £90m over the last 5 years of which USAR crewing accounts for over 60%.

New burdens funding may be inadequate for full costs 16. Again as highlighted above, the Government is fully committed to the New Burdens principle, but recognises that there will always be a discussion between central and local government about the appropriate levels of funding. Through the LGA and ALG submissions to the Spending Reviews, local government has a clear route to raise its concerns about funding levels at the time when Government draws up its spending plans. We would expect that in coming to its views in the area of New Dimensions, the LGA would look to the sector-led National Resilience Board for advice both on levels of funding generally and any future need for additional or replacement resilience capability.

Lack of transparency if special grants moved to RSG or Area Based grants, and issues over FRAs at the floor 17. Currently funding for New Dimensions is provided to the FRAs through s31 special grants. This reflects that they relate to capabilities only recently put in place, and so that funding can follow the rather uneven cost distribution, given that FRAs hold different amounts and types of ND equipment. However, Government and local authorities have long held the view that the majority of central funding is best provided as block grant (RSG) rather than many small grants with the increased administrative effort, uncertainty of timing and hypothecating effects this involves. For this reason, across the range of Government support to local authorities, there has been a cycle of new special grants, many or most of which eventually are transferred into RSG.

18. Any proposed transfer into RSG, or the relatively new Area Based Grants (ABG) would be looked at together with the FRAs themselves (for RSG this would be through the normal Formula Review process), and with exemplifications of what a transfer would mean to each individual FRA.

19. In due course, when we consider options for the future funding mechanism, we will have regard to authorities’ concerns that we are still in a transition phase, that the maintenance contract has been going for only a short while, and their wish to build up a pattern of spend over a period of time.

No clarity on future funding of the Assurance function 20. The MOU between CLG and the National Resilience Board regarding the assurance function the NRB provides, covers this Spending Review period, but is renewable so long as both parties agree, subject to consultation with stakeholders. The response to request for clarity on future funding for the National Resilience Board is no different to that on FRA funding more generally namely that, as noted above, we are unable to commit future Parliaments. However, from a policy point of view, we see the Assurance Body as working well and to the satisfaction of all, and think this bodes well for the future.

Fire and Resilience Directorate 15 December 2009

WYFRA FULL AUTHORITY 18 December 2009 ITEM NO

REPORT OF: Director of Operations

PURPOSE OF REPORT: To inform Members of the final considerations associated with the transfer of the New Dimension (ND) assets as outlined in FRSC 59/09 and seek approval to recommend that West Yorkshire Fire and Rescue Authority (WYFRA) take ownership of the assets.

RECOMMENDATION: That Members approve signing up to the proposal for the transfer of the ND assets subject to no substantive issues arising from the latest correspondence from the Chief Fire Officers Association (CFOA) to Communities and Local Government (CLG), and CLG are informed of this decision by 31 December 2009.

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: None

ACCESS CONTACT OFFICER: AM Rhodes (01274 655783)

BACKGROUND PAPERS OPEN TO INSPECTION: WYFRA Paper 24 April 2009 http://www.communities.gov.uk/publications/fire/newdimensionbriefing http://www.communities.gov.uk/publications/fire/newdimensiontransfer http://www.communities.gov.uk/publications/fire/newdimensiontransferresponses http://www.communities.gov.uk/publications/fire/fsc162009

SUMMARY

CLG has undertaken consultation with Fire and Rescue Authorities (FRAs) on the proposals to transfer ownership of New Dimension assets to FRAs. This paper outlines the reporting timetable for WYFRA’s response to the request from CLG for FRAs to sign up to the transfer of ownership and provides information on the legal and financial implications of such a decision. This paper recommends that WYFRA submit to CLG its intention to take ownership of the assets subject to clarification on the points raised by CFOA in its letter to CLG dated 19 November 2009.

1. BACKGROUND

1.1. CLG has previously conducted two consultations with FRAs on the proposals surrounding the transfer of New Dimensions assets to FRAs. FRSC 16/2009 invited FRAs to indicate if they are content in principle to the proposal for the transfer of the assets.

1.2. Whilst there are some risks associated with taking on ownership of these assets Officers recommended that WYFRA approve the proposal for the transfer in principle subject to any minor queries or revisions to the agreement, and that CLG be informed of this intention.

1.3. One of the key reasons for recommending that WYFRA take ownership of the assets is that it is intended that they will be fully integrated into WYFRS Specialist Appliances and Equipment capability as part of the fundamental review recently completed.

1.4. At the WYFRA meeting (24 April 2009) approval was given in principle for the transfer of the ownership of New Dimension assets from CLG to the West Yorkshire Fire and Rescue Authority as detailed in the report and that, if necessary (due to time constraints) the Chief Fire Officer/Chief Executive be given delegated powers to approve the transfer in consultation with the Chair of the Authority. Due to an extension of time in relation to the consultation process, this delegation is no longer necessary.

2. INFORMATION

2.1. FRSC 59/2009 was issued on 22 September 2009, the Circular provides a response to the most recent consultation earlier in 2009 and asks FRAs to sign up to the final version of the Transfer of Ownership Agreement by the end of December 2009. The following documents were attached to FRSC 59/2009:

1. Briefing paper for FRA background to New Dimension. 2. Agreement for the transfer of the New Dimension assets and functions (Draft). 3. Second consultation response to the New Dimension Transfer of Ownership Agreement. 4. FRS Circular 16/2009 Transfer of Ownership of New Dimension Assets.

2.2 The Chief Fire Officers Association (CFOA) has written to Shona Dunn (Director Fire and Resilience, Communities and Local Government on 19 November 2009, Appendix D refers). The letter raises a number of questions in order to find solutions and seek clarification for matters of considerable concern to FRSs. CFOA has yet to receive a reply from CLG.

2.3 FRAs have been invited to confirm whether they are content to sign up to the transfer and respond to the CLG by 31 December 2009 with the actual transfer taking place in early 2010.

2.4 In order to be in a position to respond to the CLG by the deadline, the following timetable was proposed:

• 3 November 2009 Final Management Team paper • 16 November 2009 Management Board paper • 18 December 2009 Full Authority Paper (confirming response) • 31 December 2009 Deadline for response

3. LEGAL IMPLICATIONS

3.1. During the initial consultation, FRAs had not been given sight of the maintenance contract which will transfer to individual Authorities when they take on ownership of the ND Assets. This has now been rectified and a summary of the terms of the National Maintenance Contract is attached as Appendix B. A summary of the Terms of Access to the National Contract by FRAs is also attached as Appendix A. Appendix C details the Consultation Response to Fire Service Circular 51/2007 on the New Dimension Transfer of ownership Agreement.

Potential areas of concern are:

3.1.1. FRAs have no control over the level of costs apportioned to them. (i.e. fixed monthly charges to cover routine maintenance, and variable monthly charges to include “unfair wear and tear”).

3.1.2. If a FRA has a dispute about the level of charges, or Terms of Access etc., then it has no right to claim direct against the Contractor. Instead claims have to be referred to Firebuy, and the FRA is legally bound by any settlement of the claim or other decision determined by Firebuy.

3.1.3. If the New Dimensions assets owned by a FRA are damaged or destroyed by them, then the Contractor is able to replace them with new assets and charge the FRA concerned for the replacements. FRAs could insure against loss, but CLG has indicated that it intends to fund only 3rd party insurance costs for vehicles only.

3.1.4. The National Contract arrangements allows charges to be made throughout the term of the Contract as to the numbers and types of New Dimensions assets to be provided and maintained, the costs of which would fall to the respective FRAs. However, the decisions as to levels and types of replacement assets are made by Firebuy and the Contractor (though it is intended the Assurance body and CLG would be involved in the process).

3.1.5. FRAs have no rights to terminate the National Contract or its application to the specific FRA. A decision to terminate is to be made by Firebuy.

3.1.6. A decision whether to grant relief from performance under “force majeure” events is for Firebuy to make and not the FRAs. If there is a major event that results in a need e.g. for replacement or more equipment, the Contractor and Firebuy can agree the respective changes, and Firebuy can issue a notice to the relevant FRAs of the costs that must be paid by them.

3.1.7. If the Contractor is required to repair assets, etc., which is not covered by the monthly fixed charge, then the work is to be carried out at the cost of FRA’s at “agreed” labour rates – but they are not specified in the documentation made available to FRAs.

3.1.8. Changes to service specifications, the assets, the Key Performance Indiciators (KPI’s), the charges and terms and conditions of the National Agreement are made only by Firebuy and the Contractor. Although Firebuy is required not to agree changes without the approval of the Assurance body or CLG where appropriate – FRAs’ agreement is not required, notwithstanding that they will be liable for the costs.

3.2. The above areas of concern are mitigated if CLG meets all the costs to the FRA under the National Maintenance Contract. In this respect, CLG has stated through FRS Circulars, that it is committed to meeting the fixed costs of the maintenance contract, but not the “unfair wear and tear” costs/variable charges.

3.3. FRAs can insure against the costs of damage/replacement of assets, and CLG has indicated it will meet 3rd party costs – however this could still leave a potential costs liability for damage/replacement to FRAs if they do not insure on a fully comprehensive basis, or if they do, potential residual costs in relation to insurance premiums, and “excess” sums are not covered.

3.3 A decision whether or not to enter into the National Maintenance Contract/Access Arrangements should also take into account:

o That the substantial initial capital cost of the assets has been met by CLG.

o CLG also currently provides grant funding for the staffing of the assets.

o The benefit of the use of the assets for normal FRA purposes.

o The prospect that, if a FRA refuses to enter into the arrangements, CLG could relocate them to another FRA which is willing to enter into the agreement with the consequent loss of staffing grants which may be substantial.

o The potential for New Burdens funding to be reduced or cease.

4. FINANCIAL IMPLICATIONS

4.1. The financial implications of the transfer of the assets are significant and fall into a number of key areas although they all relate to the uncertainty of long term funding. Whilst Government have on a number of occasions stated that it is their intention to continue to fund these assets they are unable to commit beyond the end of the current spending review. The specific issues are summarised below.

4.2. Staffing and Running Costs

4.2.1. The Authority currently receives around £1m per year in Section 31 grants from Central Government. This grant contributes to the funding provided for WYFRA for staffing and operating the new dimension assets. The Government have been clear that following the transfer of the assets they would wish to move away from direct grant funding to some other type of funding with incorporation of the grant into Revenue Support Grant being their preferred option. Clearly as far as the FRAs are concerned this would be the worst option as the grant would no longer be visible and the implications of the RSG methodology and the floors mechanism would mean that very few Authorities would continue to receive the same level of grant. This is particularly unwelcome at a time when there is likely to be a freeze or reduction in revenue support grant. CLG have undertaken to look at other alternatives for allocating the grant.

4.2.2. In terms of the transfer of assets it is likely that CLG will make the change in the means of allocating the grant irrespective of whether the assets are transferred.

4.3. Maintenance and Replacement Costs

4.3.1. The government have already entered in to a long term contract for the maintenance of the vehicles and have again promised that the maintenance costs will be included in future grant allocations. The same issue regarding sustainability of grant and method of payments apply. In addition they have awarded a 16 year maintenance contract to a single supplier, if that supplier goes into liquidation this would leave individual Authorities having to negotiate their own contract.

4.4. Insurance Costs

4.4.1. This issue could be particularly problematic in terms of national resilience. The Government have stated that if the vehicles are damaged or written off as part of a national emergency they would cover the cost of repair and replacement if they considered the vehicle needed to be replaced. (They have stated that there may be cases where they would choose to re-site other remaining vehicles as an alternative to replacement).

4.4.2. The Authority will have to insure the vehicle for local use and it is not lawful to have two separate insurance policies on the same vehicle and consequently it is difficult to see how the government guarantee would work. This would be particularly problematic when public expenditure is tight as it is unlikely CLG would have the funds immediately available for vehicle replacement.

4.5. Replacement Costs

4.5.1. Once the vehicles reach the end of their useful life they will like any other vehicles need to be replaced. There are certainly no guarantees that CLG will fund this replacement and it is suspected that they would

argue that because of local FRA benefit it should not be their responsibility.

5. Summary

5.1. As we have found with other issues (Regional Control Centres) whilst CLG can provide certain assurances regarding long term funding they cannot provide guarantees beyond the period of the spending review. Whilst accepting that we will not receive a solid guarantee of future funding it is important that we raise our financial concerns as part of the transfer process. All the above issues will be reflected in the Authority’s risk register.

5.2. It is anticipated the CFOA will receive a response from CLG in relation to the issues raised in the letter dated 19 November 2009. The CLG response will need to be considered before WYFRS submit its intention to take ownership of the assets. In the event of the response not being received before the 18th December 2009 the Chief Fire Officer/Chief Executive in consultation with the Chair of the Authority will be required to exercise the delegated powers previously granted on the basis of the content of the response.

6. EQUALITY & DIVERSITY IMPLICATIONS

6.1. None directly related to this report

7. HEALTH & SAFETY IMPLICATIONS

7.1. None directly relating to this report

8. RECOMMENDATION

8.1. Members up to the proposal for the transfer of the ND assets subject to no substantive issues arising from the latest correspondence from CFOA to CLG, and CLG are informed of this decision by 31 December 2009.

Appendix A SUMMARY OF TERMS OF ACCESS TO THE NATIONAL CONTRACT BY FRAs

1. The contractor will provide the services in accordance with the National Contract, which sets out the performance standards.

2. All performance management issues shall be raised by the FRA to Firebuy who shall be solely responsible for the performance management of the contractor.

3. FRAs agree to accept and abide by all decisions and determinations reached under the National Contract, including any determination reached under the dispute resolution procedure under that contract.

4. The FRA shall pay the FRA charges due in respect of services provided under the National Contract in respect of the FRA assets (i.e. a fixed monthly charge and a variable monthly charge).

5. FRAs acknowledge that on a 6 monthly basis, the FRA charges shall be recalibrated as provided in the National Contract.

6. Deductions from FRA charges may be awarded by Firebuy as per the National Contract.

7. The FRA shall not be entitled to set off any sum payable by the contractor to the FRA, or recoverable from the contractor by the FRA.

8. The FRA shall have no right to make its own deductions that may apply under the National Contract from the FRA charges in respect of performance (this is dealt with by Firebuy).

9. Late payments allow the Contractor to charge interest of 2% above Barclays Bank base rate.

10. All changes to the Terms of Access shall be managed by Firebuy under the National Contract, and may not be varied except with the consent of Firebuy.

11. Any dispute in relation to the Access Terms shall be resolved by Firebuy under the dispute resolution procedure in the National Contract.

12. Where any intellectual property of the FRA is required for the effective provision of services, the FRA shall grant the contractor and Firebuy a licence to use that IP for the purpose of the contractor fulfilling its obligations under the National Contract.

13. Firebuy shall take any action against the Contractor under the National Contract. The FRA is bound by any agreement between Firebuy and the Contractor, and the Terms of Access do not give separate rights for the FRA to make claims against the contractor.

14. The FRA shall indemnify Firebuy and the contractor against all liabilities etc. suffered by Firebuy or the contractor as a result of gross negligence or wilful default of the FRA.

15. The contractor liability to a FRA is subject to the limitations of liability as set out in the National Contract.

16. If the FRA becomes aware of a matter that gives rise to a claim under an indemnity given by the contractor under the National Contract, the FRA is required to notify Firebuy and consult with them etc.

17. The FRA shall co-operate in good faith, with the Contractor to allow it to comply with its obligations under the National Contract.

18. The FRA can assign its’ rights /liabilities to a successor body only.

19. FRAs cannot make any public announcements concerning the Terms of Access in any way without the consent of Firebuy and the contractor.

20. The FRA is required to :

(a) Pay all charges due re the FRA assets.

(b) Ensure that all FRA assets remain fully stocked with consumables.

(c) Manage it’s training schedule around the schedule approved under the National Contract, which sets out routine maintenance and inspection of an FRA asset notified to it, whenever possible and notify Firebuy and the contractor as soon as possible if any training activity or planned deployment is likely to conflict.

(d) Release or make available, the FRA assets when reasonably requested by the contractor for repair, maintenance etc.

(e) Ensure that FRA assets are available for collection by the contractor at agreed notified appointment times.

(f) Allow the contractor and its personnel reasonable access to the FRA premises and FRA assets so as to allow the effective provision of the services provided that photo ID is shown, and the FRA is able to verify ID if it wishes.

(g) Ensure all routine checks and maintenance activities are conducted and keep records thereof (other than where the responsibility of the contractor).

(h) Notify all defects promptly to the contractor with sufficient detail to enable diagnosis/response etc.

(i) Notify the contractor whenever it changes a tyre, of the details of date fitted, and serial no. (and age if not new).

Appendix B SUMMARY OF TERMS OF NATIONAL CONTRACT: MAINTENANCE, NEW DIMENSIONS ASSETS

1. Contract is between Firebuy and VT Critical Services Ltd.

2. Contract term is 16 years from 1.10.2008. Firebuy can (at its sole option), extend for a further 4 years, or consecutive periods totalling 4 years by 6 months notice, at a reduced level of charges.

3. A FRA wishing to take the benefit of the services provided by the Contractor has to enter into the Terms of Access document.

4. The Contractor has to enter into a Parent Company Guarantee or Bond.

5. The Contractor is required to provide the services from 1st October, 2008.

6. The Contractor is required to provide Firebuy with a phased maintenance schedule for approval.

7. The Contractor is required to comply with the Service specifications attached as Appendix A, and to commit to a process of continuous improvement.

8. Firebuy has “step in” rights in specified circumstances (e.g. failure by the Contractor entitling Firebuy to terminate: accrual of sufficient performance points) and subject to prior written notice to the Contractor.

9. Firebuy can set off any sum payable by the Contractor to FRAs (or Firebuy) against any sum due under the contract.

10. Late payment is liable to interest at 2% above Barclays Bank base rate.

11. All Contractors’ staff are required to have security clearance to basic check level and carry photo id.

Asset Refresh/Changes

12. 12.1. Each asset has a specified life (not shown in the contract provided) (and tyres a life of 5 years).

12.2. Assets are to be replaced over the term of the contract as they reach the end of their specified life, or if they are destroyed, or considered beyond economic repair, or if Firebuy and the Contractor agree they are no longer fit for purpose.

12.3. Major asset refresh programmes are currently proposed by CLG in about years 5, 10 and 15 of the Term.

12.4. Asset refresh is to take place through the Change Control Procedure (which entails agreement between Firebuy and the Contractor as to what assets are to be replaced, or what additional assets are to be provided).

12.5. Where there are any changes to the assets through asset refresh Change Control Procedures, then the charges are to be reset accordingly.

Dispute Resolution

13. Any question or difference concerning the contract or access agreement is to be resolved under the Dispute Resolution Procedures between Firebuy and the Contractor, which include the ability of Firebuy to appoint an expert to decide on the matter.

14. The Contractor is not entitled to enforce payment against an FRA where the grounds for payment are in dispute and subject to the dispute resolution procedures.

15. In respect of disputes between a FRA and the Contractor, Firebuy shall make a final determination of the dispute (if the parties fail to resolve it). In doing so, Firebuy shall take due account of :

(a) Representations of the Contractor and the FRA

(b) The views of the Assurance Body

Any determination is final and binding (except in the case of fraud or manifest error).

Intellectual Property

16. 16.1. Any bespoke IPR generated by the Contractor is to be either assigned to Firebuy or licensed to Firebuy.

16.2. Any service IP created by the Contractor is to vest in Firebuy.

16.3. If any 3rd party IPR is required, the Contractor will obtain a licence for FRAs to use that 3rd party IPR.

Indemnities

17. The Contractor indemnifies Firebuy and each FRA against liabilities and loss provided that :

(a) The parties may agree that the Contractor has exclusive conduct of the relevant proceedings, and subject to a total aggregate liability of the Contractor of £7.5 million for loss or damage relating to property, and in respect of other claims a sum equal to the charges payable in that year, and

(b) Liability for death/personal injury for negligence is unlimited.

Termination

18. The contract can be terminated (in whole or part) at any time by notice by Firebuy if the Contractor is in serious or continuing or repeated breach, and an agreed remedial plan has been served but ultimately not complied with, or the breach is not capable of remedy.

19. Firebuy can terminate the contract at any time by at least 12 months notice for no reason, in which case specified costs are payable to the Contractor (e.g. unavoidable redundancy costs).

Benchmarking

20. There is provision for benchmarking with similar services and providers every 4 years, and the parties will discuss in good faith any appropriate adjustment to the charges based upon the benchmarking results, taking into account any reasonable recommendations in the Benchmarking report.

Relief from Performance

21. 21.1. The parties acknowledge that the concept of general relief for force majeure events is not appropriate in respect of this contract, as the capability being managed is to respond to catastrophic type events.

21.2. However, the Contractor can apply to Firebuy for relief from performing obligations where there is a failure by Firebuy or one or more FRAs to undertake their responsibilities, or the level of unscheduled maintenance and/or repair is significantly unforeseen, which has an adverse impact on the contractor.

It is a matter for Firebuy whether or not to grant relief.

21.3. In respect of major events, Firebuy can give notice to the contractor to use its’ best endeavours to respond to all requests, directions or instructions issued by the FRSNCC or Firebuy to deploy, redeploy, maintain or repair or recover assets, and will be relieved from the operation of the Key Performance Indicators to the extent specified in such notices.

21.4. Within 5 days of the end of a significant incident, Firebuy and the contractor shall meet to agree a recovery plan (or a date to meet).

During the Change Control Procedure following a significant incident, CLG, the Assurance Body and any affected FRAs (and any other Government department as appropriate), shall be involved as stakeholders/interested parties.

If it is agreed through the Change Control process (between Firebuy and the contractor) that costs shall be recoverable from one or more FRA, Firebuy shall issue a notice to each FRA affected notifying them of the amount payable and a due date for payment. (to be included in the variable monthly charge).

Assignment etc.

22. 22.1. Firebuy can assign etc., its rights and obligations under the contract to other public bodies; and to any other person (with prior consent).

22.2. The contractor cannot assign etc., its rights, obligations etc, without the prior consent of Firebuy.

22.3. The contractor cannot sub-contract certain elements without prior approval of Firebuy.

Charges

23. FRAs are liable to pay a fixed monthly charge for routine maintenance of its assets, which is to be reset every 6 months (April and October) taking into account changes in asset numbers, new types of assets, changes to service specifications, and changes to the number of FRAs involved; the application of periodic benchmarking and any gainshare reductions.

24. FRAs are also liable to pay a variable monthly charge to cover :-

(a) Unfair wear and tear (e.g. loss/damage caused by the FRA).

(b) Any pass through costs of replacing consumables.

(d) Any other adjustments (payments or reductions) such as deductions in costs due to failed performance standards, or dispute resolution provisions.

25. The fixed monthly charge is payable no later than 15th of each month.

26. The undisputed part of any monthly variable charge is payable within 30 days of receipt of a valid invoice; disputed elements are to be resolved through the dispute resolution procedure referred to above.

27. Payment is to be by BACS.

28. The fixed monthly charges are subject to annual indexation increases by reference to the RPI all items (excluding Mortgage Interest Payments) index.

29. If the contractor is required to repair assets etc., which is not covered by the monthly fixed charge, then the work is to be carried out at agreed labour rates (these are not included in the contract I have).

Changes to the National Contract

30. There is a Change Control Mechanism dealing with changes required or requested by Firebuy, or by the contractor.

31. Changes can include changes to the service specification, the assets, the life of assets, the KPIs, the charges and related changes to terms and conditions.

32. No changes to the Terms of Access are permitted unless through the Change Control Procedure.

33. Firebuy will not agree changes without the approval of the Assurance Body or CLG where appropriate.

34. Stakeholders such as FRAs may propose changes to Firebuy, for Firebuy to take forward with the contractor, but FRAs and CLG will in general feed proposals to Firebuy via the Assurance Body.

Business Community

35. The contractor is required to develop and maintain and test throughout the Term, a Business Continuity Plan.

36. There are additional provisions as to e.g.:

• Contract management and MIS

• Exit plans

• Transfer of funded assets owned by the contractor on termination to Firebuy at nominal value, and the option to acquire other asset (e.g. spares) at net book value.

• Audit access

• Benchmarking arrangements

• Security standards

• Insurance by the contractor.

Appendix C

Consultation Response to Fire Service Circular 51/2007 on the New Dimension Transfer of Ownership Agreement

Subject FRA issues raised from the Consultation CLG Response Specific Drafting 1. Clause 1 (Definitions) contains no definitions. Amended to read ‘Interpretations’ Issues Specific Drafting 2. Clause 2 (Transfer) the Department should i) The Department confirms that it will retain ownership of Issues include: all intellectual property rights it holds in association with New Dimension equipment as detailed in Clause 2.1.1 of i) Whether any assets dependent upon the Transfer Agreement. programmes & systems in respect of intellectual property rights not in ownership of CLG, or ii) – iv) Agreed, a new clause 2.2 has been inserted to cannot be transferred to the FRS. cover these points.

ii) It has full legal and equitable title to the assets v) Currently New Dimension equipment is subject to other prior to transfer. contracts although these will have ended by the proposed transfer date (1 Oct 09) and hence a clause covering this iii) That no person has commenced, threatened will be added. This however will exclude the Terms of to commence any action that would be materially Access under the LTCM Maintenance Contract which FRAs inconsistent with this warranty e.g. a third party will be obligated to sign up to in line with the provisions of may sue if he claims to have legal interests in the clause 7.1. assets. vi) As mentioned above the Transfer Agreement has a iv) That there are no encumbrances (e.g. condition that in signing up to the transfer, each FRA will mortgage, charge, third party interests etc) over themselves enter into a Terms of Access agreement the assets and no agreement by the Department whereby they will access the services provided by the to create any. maintenance contractor (VTCS) in conjunction with the Subject FRA issues raised from the Consultation CLG Response preferred commercial Terms and Conditions of the contract. v) Whether the assets are the subject of no other It is a contractual obligation under this contract that contracts. equipment and vehicles are maintained so they are fit for purpose. As such, there is no need to include this clause vi) That the assets are fit for purpose and in full within the Transfer Agreement. working order (this was also requested under Schedule 3)

Specific Drafting 3. Clause 2.1.1 – CLG would need to inform Agreed. Information on rights or claims against third parties Issues FRS’s in advance of the extent to which on the equipment in reference to insurance policies will be insurance policy rights would transfer to it. provided to relevant FRAs prior to transfer.

Specific Drafting 4. Clause 3.1 (Consideration) the term ‘Assets’ It is the Departments view that the term ‘Assets’ is Issues should be changed to read either the ‘New appropriate. Dimension Assets’ or, more accurately, the ‘Equipment’.

Specific Drafting 5. Clause 5 – Liabilities: i) & ii) The Department agrees that it would be Issues unreasonable for FRAs to pick up liabilities, obligations etc. i) Request to include an indemnity on all claims, arising prior to the transfer date. However, we believe that demands, actions or costs arising before but the existing wording in the Transfer Agreement is sufficient made after the Time of Transfer to deal with this matter. Through general Departmental policy, we are unable to provide an indemnity as described. ii) Furthermore, some FRAs have suggested changing drafting of Clause 5 to read: Where there is any liability arising out of this agreement, CLG undertakes, acting in good faith, to consider how that ‘Nothing in the agreement shall pass to the FRA, liability should be met and to act in a manner consistent or shall be construed as acceptance by the FRA with a reasonable public authority.

Subject FRA issues raised from the Consultation CLG Response of, any liability, debt or other obligation of the Department (whether accrued, absolute, contingent, known or unknown) for anything done or omitted to be done before the Time of Transfer in the course of or in connection with the Equipment and the Department shall: a) indemnify and hold the FRA harmless against any and all obligations, liabilities and any action, award or other legal recourse, complaint, cost, debt, demand expense, fine, liability, loss, outgoing or proceeding arising there from; and b) perform any obligation falling due for performance or which should have been performed before the Time of Transfer.”

Specific Drafting 6. Clause 6 (Further Assurance) concerning FRAs will wish to be aware that CLG has already provided Issues request for documentation. Replace ‘the the vast majority of necessary documentation associated department considers necessary” with “the with New Dimension project to the CFOA-led Assurance Department or the FRA reasonably considers Body (the FRS National Resilience Board) and has, and will necessary’. This should not be limited to continue to, respond to any further requests from them for those considered by CLG also reasonably further documentation or action on outstanding issues. considered by the FRA. Where FRAs require documentation associated with New Dimension they are able to request this from the Assurance Body. Given this, the Department considers the current wording of clause 6 is sufficient as it is.

Specific Drafting 7. Clause 7 (Obligations) section 7.5 refers to Agreed. The Transfer Agreement has been amended

Subject FRA issues raised from the Consultation CLG Response Issues ‘Interoperability’ – this is a key term but it is accordingly. (This is now clause 7.4) not defined in the Agreement. [nb: Clause 7 has also been updated following commencement of the New Dimension maintenance contract. We have therefore deleted the previous clause 7.4 which referred to interim maintenance arrangements].

Specific Drafting 8. Schedule 3 (Obligations of the FRA): i) Agreed and amended accordingly, however the time Issues necessary to respond would be dependent on the issue i) Section 1 to make clear that the approval raised. Therefore the wording now refers to approval not should not be unreasonably withheld. In addition being unreasonably withheld by the Department and that a time period of responses by CLG should be the Department will respond to any request as soon as included. reasonably possible.

ii) Section 1.1 is too restrictive. FRS requires ii) The FRS, need assurance that the equipment remains some flexibility to be allowed to meet local interoperable at all times hence this reason for this clause. needs. The process for managing change to specifications, procedures etc. will be managed by the Assurance Body, iii) Section 4 has a new obligation to notify the on behalf of the FRS, and decisions on such issues will be FRS Coordination Centre within one hour. made collectively by them or referred to CLG where necessary. iv) Section 3 amend “best endeavours” to “reasonable endeavours.” iii) This is not a new obligation and is set out already in Circular 30/2006 (June 06). v) Section 5 – Reference to ‘maintenance’ is confused & illogical. iv) CLG’s view is that the FRS should use best endeavours, as it is currently doing, to ensure it maintains the necessary level of trained and competent staff to operate the New

Subject FRA issues raised from the Consultation CLG Response Dimension equipment both currently and once the transfer agreement is enacted. v) Agreed. The word ‘maintenance’ under section 5 has been deleted (but for clarity it remains in 5.1 and 5.2).

Specific Drafting 9. Request from several FRSs to add a clause The Department is unsure in what context FRAs have Issues on force majeure. requested a clause on force majeure. However from CLG’s perspective, there is a hazard in putting in such a clause given that New Dimension capability has been provided to respond to major national emergencies often caused by force majeure incidents. Inserting such a clause would detract from the FRAs responding to this type of incident.

Nevertheless, we have put in arrangements through the Assurance Body for dealing with write-off of equipment (which may have been caused as a result of force majeure) under the circumstances where it cannot be replaced in the short-term. Those arrangements are that the Assurance Body work with FRSs to live round losses, if necessary moving equipment or finding other solutions to keep the capability fit for purpose in the most reasonable manner.

Specific Drafting 10. Need a clause setting the circumstances in The agreement is a transfer of function and is not intended Issue which the parties can terminate and what the to be some temporary arrangement. On signing up to the consequences of termination are (e.g. return Transfer Agreement, FRSs will accept ownership of the of the equipment? Or can FRA’s opt to pay to assets and the responsibilities as set out within the keep the Equipment?) Agreement.

Subject FRA issues raised from the Consultation CLG Response Transfer of 11. FRAs have requested a further explanation As noted in Circular 51/2007 (Nov 07), transfer of function function on why the transfer of assets is considered a is the correct terminology; alternatives such as simply transfer of function; what exactly is being transfer of assets would suggest that FRSs were carrying transferred under the Agreement and if there out a service on behalf of CLG, which is clearly not the is an issue relating to VAT, for this to be case. Information on transfer of functions can be found in explained further. the HM Treasury document: “Supply Estimates: A Guidance Manual 2007” para 2.43-2.49. Weblink below. http://www.hm- treasury.gov.uk/d/estimates_manual011007.pdf

Insurance 12. Provision of 3rd party insurance – who Until the transfer is agreed CLG will continue to provide 3rd insures the assets against what risks and party insurance for the ND vehicles. After the transfer, CLG over what periods? If policies overlap, this intend to fund this directly to FRAs. We will make clear at could risk invalidating both policies and what point CLG insurance will cease (presumably the date equally, would want to avoid a gap in of transfer) in sufficient advance that FRAs can make their insurance cover. What are the funding own arrangements to insure. implications if FRS want appropriate cover above minimum level. The stakeholder view was that some FRAs self-insure and would not wish to be obligated to provide comprehensive insurance. On this basis we are providing funding to cover the minimum statutory legal requirement of 3rd party insurance only for the vehicles (not the equipment where there is no legal requirement). Any coverage above this will be at the discretion of each individual FRA.

Warranties 13. Request for confirmation over whether there There are very few warranties for New Dimension assets is a clear legal ability to transfer the existing still in operation but where they are still active, they are warranties. managed via the maintenance contractor (VTCS) on the

Subject FRA issues raised from the Consultation CLG Response Departments, and hence the FRAs, behalf. It would not be feasible to transfer these warranty rights over to 46 individual FRSs.

In terms of long-term manufacturing defects, CLG takes the view that, as the procurement agent for the New Dimension assets, it should retain responsibility for managing the defects. In the first instance, where an FRA believes there may be a fundamental concern on a vehicle or equipment type they should inform the Assurance Body accordingly. Taking in to account advice from the Assurance Body and our own Departmental advice, CLG will then take the issue forward as necessary.

Liabilities 14. Clarity on liabilities – would not accept a This transfer of function is in line with all transfer of transfer of liabilities in excess of the period for functions from central government to local authorities. which funding is guaranteed. Central government funding to local authorities is decided by spending reviews and annual settlements on which authorities are consulted.

Liabilities 15. FRAs have asked what liabilities are Long term manufacturing defects would be covered via associated with CLG for a failure beyond the warranty. (see 13 above). FRS/FRA control i.e. manufacturing defect or commonly adopted procedural defect that Procedures surrounding use of the New Dimension causes accident or injury. equipment have been developed by the Department, with full involvement of FRS practitioners. In future it is intended that where procedures are revised or updated (via the Assurance Body) resulting guidance, where applicable,

Subject FRA issues raised from the Consultation CLG Response would be issued through CLG’s national operational guidance process. Maintenance 16. Details of these contracts are not available to A copy of the Terms of Access will be provided to FRAs via Contract and FRAs. the Fire Lawyers Network in the next few weeks. Terms of Access Maintenance 17. The contract length (16years) is too long. Is Yes there are break clauses within the LTCM maintenance Contract and there a break clause? contract. These can be exercised by Firebuy – termination Terms of Access for cause (i.e. breach of contract) and termination without cause which can be enacted after three years of the contract being in operation with expiry not less that 12 months after notification. Where an FRS has an issue with the performance of the maintenance contractor this should be raised with Firebuy, as the contract managers.

Maintenance 18. What is the contractor’s responsibility for The maintenance contractor has no responsibility for Contract and training, crewing, consumables and routine training or crewing. In terms of consumables, whilst CLG Terms of Access asset refresh? owns the New Dimension assets all consumables, (in line with those outlined in Circular 52/2008, Oct 08) should be requested by FRSs via the maintenance contractor, which CLG will pay for directly. Once the transfer is enacted, CLG will provide funding to FRSs for consumables and it will be for FRSs themselves to decide whether it wishes to continue to buy the consumables from the maintenance contractor or make their own arrangements. For asset refresh it will be for the Assurance Body to decide how and where to purchase any new/additional equipment.

Maintenance 19. Question over whether it is possible for those No. The Transfer Agreement has a condition that in signing

Subject FRA issues raised from the Consultation CLG Response Contract and Brigades with PFI contracts to have their New up to the transfer, each FRA will themselves enter into a Terms of Access Dimension equipment asset managed/owned Terms of Access agreement whereby they are obligated to by their contractor. access the services provided by the maintenance contractor (VTCS) in conjunction with the preferred commercial Terms and Conditions of the contract. However, working arrangements have been put in place to ensure that where a PFI contract exists within an FRA, that VTCS, the FRA and PFI Contractor are agreed on the protocol of responsibilities at the defect reporting stage to ensure that no gaps exist in KPI performance for either party. There is also a clause in Schedule 3 of the Transfer Agreement that prevents FRAs from selling or divesting interest of the New Dimension equipment to any third-party.

Maintenance 20. Can FRAs still opt to maintain the Equipment No. (as 19 above) On transfer, FRAs will be obligated to Contract and in-house? use the VTCS contract for maintenance and repair of the Terms of Access assets. However we have encouraged VTCS to use the facilities of the FRS where feasible to do so and they have already successfully employed the services of some FRS workshops. Expressions of interest are currently being invited from FRSs who may wish to have their workshop facilities considered for use by VTCS. Visits to workshop locations will commence this month.

Maintenance 21. Will CLG fund the cost deriving from the Through Circular 52/2008 (Oct 08) CLG has committed to Contract and maintenance contract in full? paying the fixed costs of the maintenance contract relating Terms of Access to routine maintenance and servicing to ensure that the equipment and vehicles are ready to respond to a major

Subject FRA issues raised from the Consultation CLG Response (level four) incident. Whilst CLG have encouraged FRSs to also use this equipment in response to their own day to day business, it is not for CLG to fund the repair or replacement of equipment used or damaged in local incidents where FRSs choose to use it. Consistent with maintenance and repair arrangements for FRAs’ own vehicles and equipment more widely, it will be expected that where damage to New Dimension assets occurs during a local incident or as a result of an act or omission by an employee of an FRA or some person or body acting on the FRA’s behalf, that the costs of remedy or repair should be borne by that FRA. Based on the experience of New Dimension to date and given the generally good governance of the FRS, it is unlikely that charges of this nature will be frequent or of a substantial amount per FRA.

On an exceptional basis, CLG has agreed to cover the cost of unfair wear and tear up to 1 April 2009, although we have reserved the right to recharge an FRA where the case involves substantial or disproportionate costs, or where costs are of an unnecessarily repetitive nature. CLG is developing a policy of recharging FRAs for the costs associated with unfair wear and tear which will come into force this year.

Maintenance 22. What constitutes unfair wear and tear? This is covered in detail in Circular 52/2008 (Oct 08). Contract and Terms of Access

Subject FRA issues raised from the Consultation CLG Response Maintenance 23. Are Firebuy costs for contract managing the Yes. CLG are paying contract management costs directly to Contract and maintenance contract covered by CLG? Firebuy. Terms of Access Maintenance 24. How will the contracts be monitored? Will Firebuy, as the contract manager, monitors and measures Contract and there be periodic benchmarking? VTCS’s performance of the services required under the Terms of Access contract, using a robust suite of KPIs. Comprehensive Management Information is provided to Firebuy on a monthly basis and is disseminated in various forms from the Assurance Body on down to the regional forums.

In contractual terms, benchmarking will take place every four years throughout the life of the contract. However, Firebuy reserves the right to carry out a benchmarking exercise outside that regime.

Asset Refresh 25. Questions on asset refresh including In terms of routine asset refreshment such as small items confirmation of who decides when there will of equipment which require frequent refresh (i.e. be a ‘routine asset refresh’ or a ‘major IT/communications), CLG are providing funding to the refresh’ and request that operating & Assurance Body to manage this (around £1.5m pa once the replacement costs of New Dimension New Dimension capabilities have been fully transitioned vehicles & equipment be fully funded by CLG. over). It will be for the Assurance Body to take the view on what refresh is required each year. 26. What are the interim arrangements to replace assets when they come to the end of their For major asset refresh, (where the equipment/vehicles life? become unfit for purpose over time, are no longer operationally viable or more technologically advanced equipment becomes available on the market), we expect the Department to consider advice from the Assurance

Subject FRA issues raised from the Consultation CLG Response Body about every five years over the 16 year period, in the context of the relevant Spending Reviews. However, no commitment can be made to decisions beyond this spending review at this time. In the meantime, the Assurance Body will arrange for interim arrangements between FRSs to cover any equipment losses until the next major refresh.

Funding 27. Queries over the level of ‘New Burdens’ In July 2008, Ministers announced funding of £80m over funding support to be provided to FRAs to the next three years relating to New Dimension. Circular enable continuing provision of New 36/2008 (July 08) detailed the New Dimension Section 31 Dimension capability in the long-term, grants that are planned to continue for the current CSR whether the proposed funding will meet the period: costs incurred and whether in future the o 2008/09 - £23.9m funding will fall away. o 2009/10 - £27.8m o 2010/11 - £28.3m In December 2008 Govt provided funding to FRAs of £19.4m out of the £23.9m proposed. A separate grant containing the remaining funding for this financial year is expected shortly. Government remains committed to the new burdens principle and that where a new burden is imposed on FRAs, this will be funded accordingly.

Funding 28. If Section 31 grants are subject to Ministerial Section 31 Grants are merely a mechanism to pay money and Treasury approval – an FRA risks signing to FRAs. Ministers have announced the funding allocation the agreement before such approval is given for the full CSR period, in response to FRAs’ concerns and and potentially having to perform it unfunded? in line with wider Government policy to provide 3-year

Subject FRA issues raised from the Consultation CLG Response settlements.

Funding 29. In transitioning long-term funding from CLG has previously indicated that it is looking to put New Section 31 grants to the Revenue Support Dimension funding in the RSG formula in due course in line Grant (RSG), how will this affect FRAs? with agreed CLG/LGA policy, and when there is a clear history of actual costs to take account of.

It remains our intention to consider this again in the next formula grant review, when FRAs and LGA will have full opportunity to raise any remaining concerns.

Whilst we endeavour to pay larger S31 grants about mid- financial year so authorities neither benefit nor lose out from their timing, clearly any future move to RSG would remove this issue as well as giving authorities further assurance over long-term funding.

Funding 30. Who funds road fund licence renewals – are The Department presumes this refers to the tax disks? If they within the new burden scope? so, there is no cost associated with taxing this type of emergency vehicle.

Accounting 31. FRAs would like guidance over accounting With regard to the accounting treatment for the transfer of Treatment treatment of assets, in sufficient time to allow assets, FRA accounts should reflect the net book values of the accounts to be completed correctly? the assets being transferred as calculated by CLG in column four of Schedule 1 of the Agreement. The net book values of the assets are based upon modified historic cost adjusted for depreciation in accordance with CLG’s accounting policy. CLG calculates depreciation on a

Subject FRA issues raised from the Consultation CLG Response straight-line method in accordance with Financial Reporting Standard (FRS) 15. We have therefore amended the Transfer Agreement to take account of this advice accordingly.

Furthermore, given that the transfer of assets is a transfer of function, the Department has removed the reference to monetary consideration within the Transfer Agreement which would wrongly imply it was a sale of assets and hence undermine the basis for it being a transfer of function. Again, this has been amended in the Agreement.

Accounting 32. Request for a current valuation of the assets CLG has already calculated the current net book value of Treatment with a certificate including the assessment of all the New Dimension assets, however the actual value residual life and value. provided to the FRAs will be dependent on the actual time of transfer. This, and any other accounting information required, will be provided to FRAs in sufficient time prior to transfer being enacted.

Governance 33. Several FRAs requested further information As part of the FRS taking on responsibility for New on the role of the Assurance Body; how this Dimension, CLG is providing new burdens funding to group will interact and influence participating ensure the New Dimension capability remains fit for services and whether they have the purpose and interoperable. Previously CLG had undertaken necessary authority to undertake the roles this role but, in line with our long term strategy, we are envisaged for them. transitioning this over to the FRS directly.

However the Department recognises that this function cannot be undertaken by individual FRS in silo and that

Subject FRA issues raised from the Consultation CLG Response there needs to be a collective oversight on a national basis. Given this, CLG has facilitated a mechanism whereby this function can be managed strategically by the CFOA-led Assurance Body.

The aim of the Assurance Body is to provide operational assurance that the New Dimension capabilities remain fit for purpose and can be deployed consistently across national and regional boundaries, including managing and monitoring operational practices, procedures and technical advice on HVP, CBRN, USAR and Command & Control capabilities, and the associated operational IT, communications and training, asset refresh and any required siting or re-siting of assets. The Assurance function is supported by the National Resilience Advisory Team (N-RAT), and an Assurance Body representative also attends meetings between Firebuy and the maintenance contractor (VTCS) to support effective management of that contract through representing the collective customer interest.

So far the body, in its interim state as the Transition Board, has worked well from our perspective and, we understand, from the FRS’s, providing a positive and pragmatic approach to issues. The FRSs hosting each New Dimension capability sit on an operational management group, and the Chairs of each of these groups sits on the Assurance Body as the capability lead, so the body is well- placed to understand and represent FRS operational needs

Subject FRA issues raised from the Consultation CLG Response and broader FRA concerns. Should FRSs or FRAs, become concerned about the operation of the Assurance Body they are able to raise their issues at the relevant operational management group, and where concerns cannot be resolved there, they can be taken forward to the parent Assurance Body itself. The Assurance Body is by nature consensual with the FRS and although it currently broadly follows the structure used for the New Dimension project it will of course be for the FRAs collectively to decide whether this remains appropriate in the longer-term.

Governance 34. FRS concern over the reduction of Regional This issue has been overtaken by establishment of the and Assistant Co-ordinator posts and the CFOA-led Assurance Body, whereby Government is need to retain some form of regional co- providing funding of £2.24m pa to maintain regional staffing ordination, otherwise this could undermine and a central secretariat to ensure that New Dimension interoperability. capabilities are at all times kept interoperable and fit for purpose between the FRAs.

Generic 35. At the end of the Transfer of Ownership Discussion will be undertaken with FRAs near the time of Agreement is it for each fire and rescue expiry of the transfer agreement. authority to determine what it does with the equipment at that point of time?

Generic 36. Concerns regarding acceptance of financial Once the ownership of New Dimension vehicles and liability at a local level for assets whose equipment has been transferred to FRAs the use of these nature and use is directed at national level assets at regional or national level will be on the same basis as any locally procured FRA asset. Deployment of FRA assets to other FRAs as a result of a serious incident

Subject FRA issues raised from the Consultation CLG Response is covered by the National Mutual Aid Protocol as signed by every FRA and outlined in Fire Service Circular 75/2006 (Dec 06).

Generic 37. Would one FRA be liable for changes made Changes to the specification/procedures for New in other authorities? Dimension assets or alterations to the equipment itself can only be undertaken after strategic consideration. This will be undertaken by the Assurance Body on behalf of the FRAs, and, at a strategic level, CLG. It is expected that any changes approved by the Assurance Body on New Dimension capability be implemented in all FRAs, subject to usual financial/operational considerations.

Generic 38. Further clarification of the staff numbers CLG has provided all New Dimension capabilities with a required to enable the equipment to be model for the number of crew required to operate the deployed. equipment (i.e. USAR Team has an initial deployment of 10 crew). It is however, for FRSs to consider whether they are able to safely and effectively crew the equipment under a different model but are still able to provide the necessary outputs.

Generic 39. A clearer understanding of support available All these issues are being dealt with by the work of the from the centre to maintain the national Assurance Body – see Q33 above. capability will be needed with regard to training and exercising, technical refreshers, co-ordination of SOPS and resolution of safety events.

West Yorkshire Fire and Rescue Authority

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

1. An organisation that does not meet minimum requirements, Performs Poorly 2. An organisation that meets only minimum requirements, Performs Adequately 3. An organisation that exceeds minimum requirements, Performs Well 4. An organisation that significantly exceeds minimum requirements, Performs Excellently

Summary

West Yorkshire Fire and Rescue Authority provides a good service to local people. There were fewer fires than in previous years and more people escaped unharmed from fires. Although average emergency response times have increased since 2002 the Authority still provides a good service. Arrangements are in place to deal with major emergencies. The Authority works closely with partners to reduce inequality and target people who are most vulnerable. Community safety campaigns reduce the risk of fires and other emergencies. A more consistent approach to evaluation would help them to achieve even greater improvements. The Authority works well with business and property owners to enforce fire safety. As a result of effective fire protection work there has been a fall in fires in nondomestic properties. Local businesses are satisfied with the service they receive.

Staff are competent, skilled and safe. Frontline staff feel engaged and able to influence decisions. The Authority takes equality and diversity seriously and continues to improve the diversity of its workforce. But there is some way to go before the workforce is fully representative of the communities of West Yorkshire.

The Authority provides good value for money. It is seeking to improve further by reviewing the way it delivers services, but the results of these reviews will not be felt until 2010. Costs are controlled well. Service costs compare well with other authorities given the deprivation within the area. No other Fire and Rescue Authority has lower costs when compared with other fire and rescue authorities with similar levels of deprivation. The Authority promotes and displays effective principles and values of good governance.

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority provides a good service to local people. The Authority works closely with partners to reduce inequality and target people who are most vulnerable. Community safety campaigns are reducing the risk of fires and other emergencies. There were fewer fires than in previous years and more people escaped from fires unharmed. Numbers of fires confined to room where they started got slightly worse over the past year although performance is still good and on target. Accidental dwelling fire injuries are up slightly but overall fire injuries are down.

Average emergency response times have increased slightly since 2002. Fewer hoax calls were made but the number of false alarms in domestic properties has increased slightly, although nondomestic false alarms continue to decrease.

Staff are well trained and health and safety arrangements are effective. As a result there has been a fall in the number of firefighter accidents. Arrangements are in place to deal with major emergencies. The Authority works with partners to identify risks to the community through the local and regional resilience forums. A Community Risk Register is supported by plans which ensure proper levels of cover during an emergency, for example, pandemic flu.

The Authority works well with business and property owners to enforce fire safety. Because of fire protection work there has been a fall in fires in non domestic properties. Local businesses are satisfied with the service that they receive.

Leadership is strong and effective. Members and senior officers have a good track record of tackling challenging issues to make the FRA more efficient and effective. The Authority is reviewing the way it delivers services. Five reviews ,focus on Retained Duty System ﴾RDS﴿ fire fighters, emergency response specialist appliances, managerial and command and work shifts. All five reviews are progressing well but will not produce improvements until 2010 onwards.

The Authority scores 3 out of 4 for use of resources.

The Fire and Rescue Authority provides good value for money. Costs are controlled well. Service costs compare well with other authorities given the deprivation within the area. No other Fire and Rescue Authority has lower costs when compared with other fire and rescue authorities with similar levels of deprivation. The Authority uses procurement to achieve its strategic priorities. These include a more inclusive workforce, safer buildings and a greener fleet.

The Authority has a positive and consistent track record of managing change and delivering improvements over time. Good use is made of information to oversee performance and decision making. The Authority promotes and displays effective principles and values of good governance. Members' roles and responsibilities are clear and supported by effective training and development.

The Authority identifies and manages skill and capacity gaps. It develops staff skills to support new ways of working. It communicates with staff about organisational change and involves staff representative groups at an early stage. The organisational commitment to Equality and Diversity is well embedded. The progress made in recruiting women and minority ethnic fire fighters has increased year on year and retention rates are good. However, there is some way to go before the workforce is fully representative of the communities it serves. This will not be easy to achieve because of limited recruitment of fire fighters and a planned decrease in overall staff numbers. About West Yorkshire Fire and Rescue Authority

West Yorkshire covers an area of nearly 800 square miles and has a population of over 2.1 million people. It contains five districts – Bradford, Calderdale, Kirklees, Leeds and Wakefield. West Yorkshire is an area of great contrasts. It includes many largely rural areas where relatively few people live. It also contains densely populated areas with high levels of deprivation, such as the inner cities of Bradford and Leeds. Here, overcrowding is a problem, together with the quality of much of the housing.

The Fire Authority consists of councillors appointed by each of the five districts. Its role is to provide political leadership and efficient financial management and to oversee the work of the fire service. The West Yorkshire Fire and Rescue Service has responsibility for daytoday operational delivery and is led by the Chief Fire Officer supported by the Management Board

There are 34 fulltime fire stations and 14 parttime fire stations. The Fire and Rescue Authority employs 1,514 fulltime fire fighters, 196 parttime fire fighters, 60 mobilisation and communication staff members and 343 non uniformed staff.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

The Fire and Rescue Authority provides a good emergency response. Performance has improved in most areas and where there has been a decline, it has been quite small. For every 10,000 houses in West Yorkshire there were 13.8 accidental house fires. This has reduced from 15 in 2007/08. For every 1000 nondomestic properties there were 7.4 fires, down from 8.2 in 2007/08. There were fewer deliberate fires and car fires, although the number of accidental dwelling fire injuries increased slightly, but overall fire injuries are down. Slightly fewer fires were confined to the room they started in – down from 92.7 per cent to 90.4 per cent although performance is still good and on target.

Average emergency response times have increased slightly since 2002. The average response time is five minutes and 41 seconds. The Authority is reviewing response times and the need for extra prevention, protection or response arrangements. Some early improvements have been made. There were fewer hoax calls, but the number of false alarms has increased slightly.

Staff are well trained and health and safety arrangements are effective. There is an effective debrief process for all staff after incidents. This is linked to training and development as well as improved performance. Comprehensive training arrangements are in place and are viewed positively by staff. Health and safety arrangements are effective and there are robust procedures in place. As a result there has been a fall in the number of firefighter accidents. Near miss reporting has increased which shows that staff understand and are putting into practice the health and safety procedures.

Arrangements are in place to deal with major emergencies. The Authority works with partners to identify risks to the community through the local and regional resilience forums and there is a Community Risk Register. The Authority has Incident Liaison Officers and a seconded fire officer working with the national intelligence team. There are plans in place to ensure proper levels of cover during an emergency, for example, pandemic flu.

The Authority is reviewing the way it delivers services. Five reviews focus on parttime fire fighters, emergency response, specialist appliances, managerial and command and work shifts. All five reviews are progressing well and have identified improvements from 2010 onwards.

Deliver a proactive fire community safety and wellbeing programme

Community safety campaigns are reducing the risk of fires and other emergencies. The Authority predict where incidents are likely to occur, who they are most likely to happen to and what the most likely causes are. This helps to identify highrisk areas and where work is needed the most. There have been some positive results: The Arson Task Force has reduced deliberate fires. Home Fire Safety Assessments are helping to reduce deaths, injuries and house fires. Road Safety Roadshows are helping to improve road safety awareness. Bonfire Night campaigns have reduced attacks on fire fighters and deliberate fires. The Authority reviews projects to see if they have achieved results. But a more consistent and systematic approach to evaluation would help them to achieve even greater improvements.

The Authority works closely with partners to reduce inequality and target people who are most vulnerable. There are good links with local councils and other partners. The Authority delivers wider community improvements in line with Local Area Agreements including the Affordable Warmth Project which focuses on people in fuel poverty with a higher home fire risk and the Young Fire fighters scheme. A multiagency approach in Bradford tackles antisocial behaviour, deliberate fires and attacks on fire fighters. This resulted in a 44 per cent fall in deliberate fires for the period, reduced attacks on fire fighters, 55 per cent fall in police calls and 32 per cent fall in crimes recorded during the period.

The Authority works effectively with business and property owners to enforce fire safety. They help local businesses to comply with fire safety legislation and take enforcement action where necessary. Because of fire protection work there has been a fall in fires in nondomestic properties. Local businesses are satisfied with the service they receive.

Provide a competent, skilled, safe and diverse workforce

Staff are competent, skilled and safe. The Authority develops staff skills and operational training has a high importance. The Authority has received an Investors in People award. Health, safety and wellbeing of the workforce is important. No staff have retired because of ill health. Sickness absence figures were getting worse but are now improving again after the Authority reviewed and reinforced its sickness absence procedures. Sickness rates for uniform staff are 7.1 days and for all staff 7.6 days. These are below target.

Engagement with staff is strong. The Authority tells staff about changes which will affect them. It ensures that staff are aware of the need for change and understand the reasons for it. As a result, frontline staff feel engaged and able to influence decisions.

The Authority takes equality and diversity seriously and continues to improve the diversity of its workforce. Recruitment events encourage women and people from black and minority communities to become fire fighters. Over the last 10 years numbers of female fire fighters have increased from 4 to 59 and fire fighters from minority ethnic backgrounds have increased from 10 to 57. 13.7 per cent of all staff are now women and 4.2 per cent are from minority ethnic backgrounds, but there is some way to go before the workforce is fully representative of the communities of West Yorkshire. This will not be easy to achieve because of limited recruitment of fire fighters and a planned decrease in overall staff numbers to address the expected reduction in public funding by central government.

Provide effective ethical governance and efficient environmentally sustainable resource management

The Authority promotes and displays effective principles and values of good governance. Member roles and responsibilities are clear and supported by effective training and development. There are strong performance management arrangements which link the overall vision of the Fire and Rescue Authority to activity. All staff have access to the electronic performance management system which allows them to see clearly how their work impacts on the overall performance of the Authority.

The Authority works well with other partners at a local and regional level. A well embedded Partnership Policy and Register includes governance arrangements for working in partnership agreements and protocols signed by the partners. A suite of documents is under development to ensure effective information sharing across the Authority.

The Authority contributes to and influences the Regional Management Board although it is acknowledged that the rate of progress on collaborative projects has been slow. Examples of regional working include successful Regional Improvement Efficiency Programme ﴾RIEP﴿ bids for CAA Peer Review, a Technical Services Feasibility Study and collaboration to deliver fire investigation services.

The Authority makes efforts to limit its impact on the environment. There is an environmental policy and working group of key staff. The Authority uses biodiesel for all cars, checks energy use across properties and has built a range of energy and sustainability measures into the design of the Safety Central building.

CAA looks at how well local public services, working together, are meeting the needs of the people they serve. It's a joint assessment made by a group of independent watchdogs about the performance of local public services, and how likely they are to meet local priorities. From 9 December you will find the results of Comprehensive Area Assessment on the Oneplace website http://oneplace.direct.gov.uk/

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Audit Commission, 1st Floor, Millbank Tower, Millbank, London SW1P 4HQ Telephone: 0844 798 1212 Fax: 0844 798 2945 Textphone ﴾minicom﴿: 0844 798 2946 www.auditcommission.gov.uk West Yorkshire Fire and Rescue Authority

Organisational Assessment

Dated 9 December 2009

Organisational Assessment Publication Version Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

2 West Yorkshire FireThe Authority provides a good service to local people. The Authority works and Rescue Authority closely with partners to reduce inequality and target people who are most vulnerable. Community safety campaigns are reducing the risk of fires and other emergencies. There were fewer fires than in previous years and more people escaped from fires unharmed. Numbers of fires confined to room where they started got slightly worse over the past year although performance is still good and on target. Accidental dwelling fire injuries are up slightly but overall fire injuries are down.

The Authority scores 3 out of 4 for use of resources.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

The Authority provides good value for money. It is seeking to improve further Organisational Assessmentby reviewing the way it delivers services, but the results of these reviews will Publication Version Dated 9 December 2009 not be felt until 2010. Costs are controlled well. Service costs compare well with other authorities given the deprivation within the area. No other Fire and Rescue Authority has lower costs when compared with other fire and rescue authorities with similar levels of deprivation. The Authority promotes and displays effective principles and values of good governance.

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

The Authority identifies and manages skill and capacity gaps. It develops staff skills to support new ways of working. It communicates with staff about 3 West Yorkshire Fireorganisational change and involves staff representative groups at an early and Rescue Authority stage. The organisational commitment to Equality and Diversity is well embedded. The progress made in recruiting women and minority ethnic fire fighters has increased year on year and retention rates are good. However, there is some way to go before the workforce is fully representative of the communities it serves. This will not be easy to achieve because of limited recruitment of fire fighters and a planned decrease in overall staff numbers. About West Yorkshire Fire and Rescue Authority

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

Organisational AssessmentThe Authority has a positive and consistent track record of managing change Publication Version Dated 9 December 2009 and delivering improvements over time. Good use is made of information to oversee performance and decision making. The Authority promotes and displays effective principles and values of good governance. Members' roles and responsibilities are clear and supported by effective training and development.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

The Fire and Rescue Authority provides a good emergency response. Performance has improved in most areas and where there has been a decline, it has been quite small. For every 10,000 houses in West Yorkshire there were 4 West Yorkshire Fire13.8 accidental house fires. This has reduced from 15 in 2007/08. For every and Rescue Authority 1000 nondomestic properties there were 7.4 fires, down from 8.2 in 2007/08. There were fewer deliberate fires and car fires, although the number of accidental dwelling fire injuries increased slightly, but overall fire injuries are down. Slightly fewer fires were confined to the room they started in – down from 92.7 per cent to 90.4 per cent although performance is still good and on target.

Deliver a proactive fire community safety and wellbeing programme

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment Organisational Assessment Publication Version Dated 9 December 2009 Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

The Authority works closely with partners to reduce inequality and target people who are most vulnerable. There are good links with local councils and other partners. The Authority delivers wider community improvements in line with Local Area Agreements including the Affordable Warmth Project which 5 West Yorkshire Firefocuses on people in fuel poverty with a higher home fire risk and the Young and Rescue Authority Fire fighters scheme. A multiagency approach in Bradford tackles antisocial behaviour, deliberate fires and attacks on fire fighters. This resulted in a 44 per cent fall in deliberate fires for the period, reduced attacks on fire fighters, 55 per cent fall in police calls and 32 per cent fall in crimes recorded during the period.

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

Community safety campaigns are reducing the risk of fires and other emergencies. The Authority predict where incidents are likely to occur, who they are most likely to happen to and what the most likely causes are. This helps to identify highrisk areas and where work is needed the most. There have been some positive results: The Arson Task Force has reduced deliberate fires. Home Fire Safety Assessments are helping to reduce deaths, injuries and Organisational Assessmenthouse fires. Road Safety Roadshows are helping to improve road safety Publication Version Dated 9 December 2009 awareness. Bonfire Night campaigns have reduced attacks on fire fighters and deliberate fires. The Authority reviews projects to see if they have achieved results. But a more consistent and systematic approach to evaluation would help them to achieve even greater improvements.

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

The Authority promotes and displays effective principles and values of good governance. Member roles and responsibilities are clear and supported by effective training and development. There are strong performance management arrangements which link the overall vision of the Fire and Rescue Authority to activity. All staff have access to the electronic performance management system which allows them to see clearly how their 6 West Yorkshire Firework impacts on the overall performance of the Authority. and Rescue Authority

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource Organisational Assessmentmanagement Publication Version Dated 9 December 2009

7 West Yorkshire Fire and Rescue Authority

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Organisational Assessment

Dated 9 December 2009

West Yorkshire Fire and Rescue Authority

Overall, West Yorkshire Fire and Rescue Authority performs well

Managing performance 3 out of 4

Use of resources 3 out of 4 Managing finances 3 out of 4 Governing the business 3 out of 4 Managing resources 3 out of 4

Description of scores:

Summary

West Yorkshire Fire and Rescue Authority scores 3 out of 4 for managing performance.

The Authority scores 3 out of 4 for use of resources.

The ambition of West Yorkshire Fire and Rescue Authority is ‘Making West Yorkshire Safer'. The Authority's priorities are to:

Deliver a professional and resilient emergency response service;

Deliver a proactive fire community safety and wellbeing programme;

Provide a competent, skilled, safe and diverse workforce; and

Provide effective ethical governance and efficient environmentally sustainable resource management. Organisational assessment

Deliver a professional and resilient emergency response service

Deliver a proactive fire community safety and wellbeing programme

Provide a competent, skilled, safe and diverse workforce

Provide effective ethical governance and efficient environmentally sustainable resource management

Alternative formats If you require a copy of PDF documents in this site in large print, in Braille, on tape, or in a language other than English, please call: 0844 798 7070

Audit Commission, 1st Floor, Millbank Tower, Millbank, London SW1P 4HQ Telephone: 0844 798 1212 Fax: 0844 798 2945 Textphone ﴾minicom﴿: 0844 798 2946 www.auditcommission.gov.uk

8 West Yorkshire Fire and Rescue Authority FIRE & RESCUE SERVICE COMPREHENSIVE AREA ASSESSMENT PERFORMANCE FRAMEWORK RESULTS 2009 Organisational Assessment Use of Resources

Fire Authority Use of Organisational Assessment Managing Governing the Managing Managing Performance Resources Overall Score Finances Business Resources Overall Score

Avon 3333 3 Performs Well Bedfordshire & Luton 3233 2 Performs Adequately Buckinghamshire & Milton Keynes 2222 2 Performs Adequately Cambridgeshire & Peterborough 2222 2 Performs Adequately Cheshire 2222 3 Performs Well Cleveland 3222 3 Performs Well Cornwall County 1121 1 Performs Poorly County Durham & Darlington 2222 3 Performs Well Cumbria 2222 2 Performs Adequately Derbyshire 2222 3 Performs Well Devon & Somerset 2222 2 Performs Adequately Dorset 3333 3 Performs Well East Sussex 2222 2 Performs Adequately Essex 2222 3 Performs Well Gloucestershire 3323 3 Performs Well Greater Manchester 3323 3 Performs Well Hampshire 3333 3 Performs Well Hereford & Worcester 3333 3 Performs Well Hertfordshire 3333 3 Performs Well Humberside 2222 2 Performs Adequately Isle of Wight 2222 2 Performs Adequately Isles of Scilly N/A N/A N/A N/A N/A N/A Kent & Medway 3333 3 Performs Well Lancashire 3343 4 Performs Excellently Leicestershire & Rutland 2222 2 Performs Adequately Lincolnshire 2222 3 Performs Well London Fire & Emergency Planning 2333 3 Performs Well Merseyside 3333 3 Performs Well Norfolk 2222 2 Performs Adequately FIRE & RESCUE SERVICE COMPREHENSIVE AREA ASSESSMENT PERFORMANCE FRAMEWORK RESULTS 2009 Organisational Assessment Use of Resources

Fire Authority Use of Organisational Assessment Managing Governing the Managing Managing Performance Resources Overall Score Finances Business Resources Overall Score

North Yorkshire 2222 3 Performs Well Northamptonshire 2222 2 Performs Adequately Northumberland 3222 3 Performs Well Nottinghamshire & City of Nottingham 2232 2 Performs Adequately Oxfordshire 3333 3 Performs Well Royal Berkshire 2222 2 Performs Adequately Shropshire & Wrekin 3333 3 Performs Well Somerset 2222 2 Performs Adequately South Yorkshire 2222 2 Performs Adequately Stoke on Trent & Staffordshire 2232 3 Performs Adequately Suffolk 3222 3 Performs Well Surrey 2232 3 Performs Well Tyne & Wear 3333 3 Performs Well Warwickshire 2222 2 Performs Adequately West Midlands 2333 3 Performs Well West Sussex 3222 3 Performs Adequately West Yorkshire 3333 3 Performs Well Wiltshire & Swindon 3222 3 Performs Well REGIONAL FIRE & RESCUE SERVICE COMPREHENSIVE AREA ASSESSMENT PERFORMANCE FRAMEWORK RESULTS 2009 Organisational Assessment Use of Resources

Fire Authority Use of Organisational Assessment Managing Governing the Managing Managing Performance Resources Overall Score Finances Business Resources Overall Score

Humberside 2222 2 Performs Adequately North Yorkshire 2222 3 Performs Well South Yorkshire 2222 2 Performs Adequately West Yorkshire 3333 3 Performs Well

DISTRICT AUTHORITY COMPREHENSIVE AREA ASSESSMENT PERFORMANCE FRAMEWORK RESULTS 2009 Bradford 2222 2 Performs Adequately Calderdale 3222 2 Performs Adequately Kirklees 2232 2 Performs Adequately Leeds 3223 2 Performs Adequately Wakefield 3222 3 Performs Well

Barnsley 3233 3 Performs Well Doncaster 2222 1 Performs Poorly Kingston Hull 2222 2 Performs Adequately North East Lincolnshire 2222 2 Performs Adequately North Lincolnshire 2222 2 Performs Adequately Sheffield 3233 3 Performs Well Rotherham 3333 2 Performs Adequately City of York 2222 3 Performs Adequately East Riding of Yorkshire 3333 3 Performs Well

West Yorkshire Police Authority 3233 North Yorkshire Police Authority 2222 South Yorkshire Police Authority 3323

WYFRA FULL AUTHORITY 18 DECEMBER 2009 ITEM NO

REPORT OF: DIRECTOR OF CORPORATE RESOURCES

PURPOSE OF REPORT: TO INFORM MEMBERS OF THE RESULTS OF THE AUDIT COMMISSION’S COMPREHENSIVE AREA ASSESSMENT (CAA) OF THE AUTHORITY DURING 2009

RECOMMENDATION: THAT MEMBERS NOTE THE CAA RESULTS FOR 2009

______

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: NONE

ACCESS CONTACT OFFICER: ALISON DAVEY – 01274 655801 CORPORATE SERVICES MANAGER [email protected]

BACKGROUND PAPERS OPEN TO INSPECTION:

NONE

SUMMARY:

This report provides the results of the Audit Commission’s Comprehensive Area Assessment (CAA) of West Yorkshire Fire and Rescue Authority for 2009.

1. BACKGROUND

1.1 The Audit Commission’s Comprehensive Area Assessment (CAA) process was introduced in 2009 to replace the Comprehensive Performance Assessment process. Members have previously been provided with detailed information regarding the CAA process which includes: individual organisational assessments and an area assessment.

1.2 The organisational assessment focuses on each organisation’s effectiveness by looking at how well it delivers value for money through the use of resources assessment and how well it manages its performance.

1.3 The CAA organisational assessment is based on four themes which are reported in a single short report published with, and at the same time as, the area assessment.

1.4 This consists of three themes that make up the use of resources assessment and one theme on managing performance.

1.5 The report summarises how well the fire and rescue service:

o Manages finances, looking at how effectively the organisation manages its finances to deliver value for money.

o Governs the business, covering how well it governs itself and commissions services that provide value for money and deliver better outcomes for local people.

o Manages resources, considering how well the organisation manages its natural resources, physical assets and people to meet current and future needs and deliver value for money.

o Manages performance, covering how well it is delivering services, outcomes and sustainable improvements in its priorities that are important locally. Including whether it has the leadership, capacity and capability it needs to deliver future improvements.

1.6 Scores are allocated to each of the four themes as detailed below:

1. An organisation that does not meet minimum requirements – Performs Poorly.

2. An organisation that meets only minimum requirements – Performs Adequately.

3. An organisation that exceeds minimum requirements – Performs Well.

4. An organisation that significantly exceeds minimum requirements - Performs Excellently. 2. INFORMATION

2.2 Organisational Assessment

2.2.1 West Yorkshire Fire and Rescue Authority has achieved the following results in the Organisational Assessment:

Managing Performance 3 out of 4

Use of Resources 3 out of 4

Managing Finances 3 out of 4

Governing the Business 3 out of 4

Managing Resources 3 out of 4

2.2.2 Overall, West Yorkshire Fire and Rescue Authority (WYFRA) performs well in the Organisational Assessment.

2.2.3 Achievement of scores of three in each theme is a significant achievement in the first year of the revised assessment.

2.2.4 The Audit Commission report on the Organisational Assessment is attached in Appendix A.

2.2.5 In order to provide a comparison with other fire and rescue authorities, Appendix B shows the Organisational Assessment results for all other fire and rescue authorities with the Metropolitan Fire and Rescue Authorities highlighted.

2.2.6 In addition, Appendix C shows the results for the regional Fire and Rescue Authorities, Police Authorities and District Authorities.

2.2.7 Members may wish to note that WYFRA is one of the highest performing FRAs in the country, with only one FRA; Lancashire, achieving a higher score overall.

2.2.8 WYFRA is the highest performing FRA in the region, achieving a score of 3 across all areas of the assessment with an overall score of Performs Well.

2.2.9 Also, compared with the five district authorities in West Yorkshire, WYFRA is the highest performing authority across all areas of the assessment. Wakefield Council are reported as Performs Well but have not achieved the high scores of 3 across all areas of the assessment, as have WYFRA.

2.3 Area Assessment

2.3.1 The Audit Commission publish a report of the annual area assessment for each area covered by Local Area Agreement.

2.3.2 The report provides an overview of significant success and innovation, as well as indentifying clearly any concerns not being addressed.

2.3.3 West Yorkshire Fire and Rescue Authority will work with each area of West Yorkshire to address any issues identified within the individual Area Assessment reports.

2.3.4 The Audit Commission published all reports on 9 December 2009 on the ‘Oneplace’ website.

3 FINANCIAL IMPLICATIONS

3.1 There are no financial implications arising from this report

4 EQUALITY AND FAIRNESS IMPLICATIONS

4.1 Equality and diversity implications are addressed within the CAA process.

5 HEALTH AND SAFETY

5.1 Health and safety implications are addressed within the CAA process.

6 RECOMMENDATION

6.1 That Members note the CAA results for 2009.

WYFRA FULL AUTHORITY 18 DECEMBER 2009 ITEM NO

REPORT OF: DIRECTOR (FS&CR)

PURPOSE OF REPORT: TO PROVIDE AN UPDATE ON THE POLICY FOR DEALING WITH UNWANTED FIRE SIGNALS AND TO RECOMMEND FURTHER PREVENTATIVE ACTIONS

RECOMMENDATION: THAT MEMBERS NOTE THE REPORT AND APPROVE THE RECOMMENDATIONS

EXEMPTION CATEGORY: N/A

CONTACT OFFICER: NIGEL CHARLSTON

BACKGROUND PAPERS F & R PAPER - 30 JANAURY 2009

REPORT - REDUCING FALSE ALARMS – REDUCTION THROUGH PARTNERSHIP

CFOA 2008 POLICY REDUCTION OF FALSE ALARMS & UNWANTED FIRE SIGNALS

SUMMARY: This paper provides a report on the activity carried out to reduce the number of unwanted fire signals (UwFS) generated by fire detection and fire alarm systems. The number of automatic fire detection and fire alarms systems installed is increasing and there is concern about the corresponding increase in UwFS from these systems.

The report is produced in 2 sections, one on our reduction activities and the other on our mobilisation policy.

Section 1 - Reduction Activity

1.1 In 2004, following the various reports including the HMFI ’’Reducing False Alarms – Reduction through Partnership’’ on the problems associated with the FRS attending false alarms, particularly from automatic fire alarm systems, WYFRS formed an Unwanted Fire Signals Team to address the problem.

1.2 Later that same year CFOA published a policy for Remotely Monitored Fire Alarm Systems, which was aimed at reducing false alarms from remotely monitored systems. The policy was adopted by this Authority in 2004.

1.3 Over the following 5 years, the policy was successful in reducing the number of attendances to false alarms in commercial/industrial premises from 9358 in 2003/04 to 6,250 in 2008/09, however although overall reductions were being made in industrial/commercial premises, the Policy was not appropriate for use in reducing the number of UwFS in domestic premises.

1.4 In September 2008 CFOA introduced its new policy for the Reduction of False Alarms & Unwanted Fire Signals. A report on the measures taken and action proposed to further reduce the number of false alarms was discussed during an Finance & Resources meeting on 30 January 2009. On the conclusion of that meeting agreement was reached to adopt the new CFOA policy.

1.5 The new policy has been gradually introduced since January 2009. There are certain areas that still need to be fully addressed; these have been delayed due to national consultations which are expected to be completed within the next few months.

1.6 The key features of the new policy are:

• There are two distinct elements which this policy seeks to address: false alarms occurring within the premises and preventing these false alarms becoming an UwFS which impact on the FRS resources. To prevent UwFS, it is recommended that call filtering on site should be implemented in all premises subject to the Fire Safety Order (i.e. all premises other than private single dwellings)

• It provides a framework for a partnership between the protected premises, the fire alarm service provider and the FRS, to ensure that the obligations, responsibilities and actions of all parties will be clear and well understood.

1.7 The current policy seeks to address the issue of a relatively small number of premises (e.g. Hospitals) generating a large number of false alarms and UwFS. However we must recognise that the largest proportion of our UwFS come from premises producing just one or two false alarms per year. These UwFS are not, generally, initiated from poorly performing fire alarm systems and it is very difficult, if not impossible to eradicate these calls.

1.8 Nationally the number of false alarms recorded has increased over recent years, largely in line with the increased use of automatic fire detection (AFD) systems. 10 years ago building developers had to be convinced as to the benefits of AFD systems. Today, building developers install AFD as a matter of course, whether or not there is any legal requirement to do so. This significantly increases the risk of UwFS.

1.9 Although progress has been made to reduce the number of UwFS in commercial premises, the following graph does not give an accurate picture of the progress made. The graph takes no account of the significant increase in AFD systems installed during the reporting period. It is estimated that the use of AFD connected to a monitoring centre has increased by 10% in the last 10 years.

1.10 The largest increase in the number of detectors installed can be found in newly built residential accommodation, schools and hospital premises. Just one example is the recently opened Oncology Department situated in the Bexley Wing on the St James's University Hospital site. This building has in excess of 8,500 detectors. According to the fire alarm engineers, if this new fire alarm system performed to recommended standards it could be expected to produce 170 false alarms per year (e.g. 1 false alarm per year for every 50 detectors). This one building alone could therefore add a 2.5% increase to our yearly total of UwFS. Further information from the Trust indicates that in the last 18 months there has been a 45% increase in number of detectors installed within their premises.

12000

10000

9358 9062 8585 8000 8392

6000 6171 6250

5660 5428

4867 4505 4000 4182 3844

2000

0 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 AFA commercial AFA Dwelling Linear (AFA commercial) Linear (AFA Dwelling)

1.11 Members at the last Authority meeting expressed concerns that UwFS now account for 32% of our operational activity. The following Pie Charts indicate the breakdown of activity in West Yorkshire for the year 2003/4 compared with 2008/9. The main difference between the two years is the significant reduction in primary and secondary fires.

1.12 If we use the current UwFS performance data and place it in the overall activity levels for 2003/4, UwFS account for only 23% of the Authority’s operational activity (see Chart 3).

Chart 1

2003/04

FA Malicious 4%

FA Good intent Pr imar y 10% 18%

AFA Dw elling 7%

A FA c ommer c ial 18% Secondary 35% SSC 8%

Chart 2

2008/09

FA Malicious 3% Pr imar y 13% FA Good intent 15%

AFA Dw elling Secondary 15% 27%

AFA commercial SSC 17% 10%

Chart 3

2003/04 with 08/09 AFAs

FA Malicious 5% Pr imar y FA Good intent 19% 10%

AFA Dw elling 11%

AFA commercial 12% Secondary SSC 35% 8%

1.13 The Fire Service Emergency Cover (FSEC) Toolkit gives credit to the provision of AFD in two respects, firstly by increasing the probability of occupants escaping from a fire and secondly by providing earlier calls to the FRS and enabling earlier fire control and proportionately less damage occurring.

1.14 The current National Incident Recording System does not fully indicate the benefits of AFD systems because it does not have a category for a ‘near miss’. For example, a chip pan is left unattended on a cooker and the temperature rises uncontrolled until it actuates the fire alarm system and a call is automatically sent to the FRS. This alarm also provides a warning for the occupant who turns off the heat to the pan before it fully ignites. When the FRS arrives at the address there are no further actions for them to carry out and the incident is recorded as an UwFS. This is not considered to be a false alarm, as without the AFD system such an incident could have developed causing significant damage to the property and endangered the occupant’s life.

1.15 In order to significantly reduce the number of UWFS it is necessary to agree an appropriate delay (call challenge) in calling the FRS. The call challenge strategy assumes that on average response is delayed by at least one minute.

1.16 The following diagram illustrates the time/temperature curve for a normal fire. It can be seen that even a small delay on the ‘time’ axis can result in a significant increase in property damage costs, injuries and fatalities.

1.17 CLG’s Annual Report 2007 noted that the time taken by the FRS to respond to emergency calls has risen. As a result CLG commissioned Greenstreet Berman Ltd to carry out the research into response times. Their report concluded that the response times to fires had increased. Fires (dwelling fires, Other Buildings fires, larger outdoor fires and road vehicle fires) were examined for the period 1996 to 2006. It was found that response times to each type had increased from 1999, primarily due to increased traffic levels. Using response time fatality rate relationships, it was predicted that the increased response times may contribute to about 13 additional fatalities in dwelling and Other Buildings fires each year and an £85m increase in Other Buildings fire damage. However, recorded annual dwelling fire fatalities fell by 142 between 1996 and 2006, and the average size of fires has not increased. This suggests that increased response times to fires have been more than offset by other factors, particularly improved fire safety and the use of AFD.

1.18 Fire data indicates that the average fire detection and call time exceeds the response time, specifically fire detection and call times are about three times the response time in the case of Other Buildings. Therefore, improvements in fire detection can reduce the fire duration, fire size and cost. Previous research indicated that the use of AFD systems reduced fire detection times by about 30 per cent, in the order of seven minutes.

1.19 In the conclusion, Greenstreet Berman state:

• Further improvements in fire detection times could cost beneficially reduce the time between ignition and arrival of the FRS, as well as further enhancing the safety of occupants

• Fire detection time could be used as a measure of the success of fire safety work aimed at promoting the use of automatic fire detection.

1.20 The above comments provide a compelling case for an increased use of AFD; however more AFD inevitably leads to more UwFS.

SECTION 2 - MOBILISATION

2.1 Responding to UwFS is a drain on resources, and time is lost that could have been deployed in more productive work such as community fire safety activities. As a result, in our first year IRMP, a proposal was made to change the mobilisation policy for AFA calls as from April 2004.

2.2 From April 2004, the following mobilising criteria have been used for fire alarm actuations: -

• A minimum 1-pump attendance to all premises for unconfirmed fire alarm signals received between the hours 0800 and 1900. If considered necessary after carrying at a risk-assessment, then a minimum of 2-pumps is mobilised (e.g. high rise flats).

• Outside these hours the full-predetermined attendance (minimum 2- pumps) is mobilised.

• A confirmed fire always attracts a full emergency response irrespective of time of day.

2.3 Since implementation, fire appliance mobilisations have been reduced by 44,869. This significant decrease provides reductions in fuel costs, carbon emissions, retained turnout fees and vehicle depreciation. It also reduces the risk to firefighters and members of the public in not having to respond on blue lights.

3. Financial Implications

3.1 The latest figures published by the government estimate that the cost of false alarms in the UK is around £1 billion a year. Much of this cost is borne by commerce from lost production and interruptions to business.

3.2 Using the costs associated with special service calls (£385 = 1 pump up to 1 hour), produces a total of £17,270,000 efficiency savings from the reduction in mobilisations.

3.3 Calculating the true costs associated with UwFS for this Authority is extremely complex, as a balance needs to be made between attendance costs and the benefits of reduced response times. There is at present no national model available for us to use that provides an accurate cost/benefit analysis. Further calculations based on work carried out by Greenstreet Berman is required; however see the recommendation made in paragraph 7.2.

4. Equality & Fairness issues

4.1 There are no equality and fairness issues arising from this report.

5. Health & Safety Implications

5.1 The Authority will endeavour to protect the public by safely reducing the number of UwFS, preventing complacency in protected buildings and safeguarding fire fighters responding to unnecessary calls.

6. Conclusions

6.1 To date there has been no occasion where an UwFS has adversely affected our capability to appropriately respond to a genuine fire call.

6.2 It is essential that our strategy for the reduction of UwFS is carefully managed so as not to reduce the protection provided by AFD systems. While there are significant benefits claimed for resources released to be used for other activities, these gains could be offset by increases in expected fatalities and property damage attributable to the delay in response to genuine fires.

6.3 The implementation of our policy requires a major cultural change from the FRS, the fire industry, business and public. For the last 20 years we, and others, have used the public safety slogan “If you suspect a fire GET OUT, STAY OUT, and GET THE FIRE BRIGADE OUT”. The current policy introduces a risk assessed filtering system, enabling the responsible person to arrange for a check to be made in the premises before calling the FRS. This a significant change to previous working practices and changing the mindset of the FRS, risk assessors and the public will take time and a great deal of effort, however since introducing the new policy, considerable change in attitude has already taken place and should continue to do so

7. Recommendation

7.1 The National Framework 2008/11 expects that the Authority has a fire protection management strategy and a risk-based inspection programme. This programme must form part of the Authority’s IRMP. Although work associated with reducing the number of UwFS forms part of the current programme (2009/10) it is recommended that additional specialist resources (taken from the existing establishment) be reassigned to supplement this work during 2010/11.

7.2 As part of the IRMP risk-mapping exercise, due to commence in 2010, the resource implications and cost/benefit associated with AFD v UwFS should be evaluated. For example the cost of UwFs compared with the benefits of improved fire detection times that can reduce the fire duration, fire size, risk to life and cost.

West Yorkshire Fire and Rescue Service Appendix 1 Death Report information

Date of Incident: 04/04/09 Incident Number: 8785091

Type of Property: House

ADF, Deliberate: Deliberate

Age of fatality: 12

Cause of fire: Deliberate ignition by third party, ignition (Location, type) of armchair by combustible material

HFSC completed: No HFSC was completed at this property prior to the fire.

Detection Fitted: 3 smoke detectors were fitted: - 1 battery detector - 2 hard wired detectors

Other Brigade contact: District Fire Safety made recommendations regarding the fire detection and escape procedures

Hot Strike: During the subsequent hot strike 20 HFSC were carried out in the surrounding area

Other agency The family was known to Social Services and involvement: also to the Autistic Society, both agencies had been involved in making adaptations to the property. The safe room, where the child was found, was paid for by the Autistic Society.

1 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 06/05/09 Incident Number: 15745091

Type of Property: House

ADF, Deliberate: Accidental

Ages of Fatalities: 4yrs and 2yrs Date of Birth(s):

Cause of fire: The cause of fire was ignition by (Location, type) naked flame by one of the children after playing with a gas lighter in the bedroom

HFSC completed: A HFSC had not been carried out at this property prior to the fire.

Detection: 2 hard wired detectors were in the property – not known if actuated

Other Brigade contact: There is a suggestion that one of the children displayed firesetting behaviour, however he was not known to the WYFRS Firesetters team.

Hot Strike: Awaiting figures from Station

Other agency There was no evidence of any other agency involvement: involvement with these occupants.

2 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 13/05/09 Incident Number: 17149091

Type of Property: House

ADF, Deliberate: Accidental

Age of Fatality 0 Date of Birth(s): 28/06/08

Cause of fire: The evidence suggests that a food processor (Location, type) had an electrical fault which resulted in a fire starting in the kitchen.

HFSC completed: There had been no HFSC carried out at this property prior to the fire.

Detection: 1 battery detector

Other Brigade contact: None

Hot Strike: There were 48 HFSC’s carried out in the area after the fire.

Other agency The family had contact with Social involvement: Services, with a view to supporting one of the children who has long standing medical problems. After the fire the Children and Families team have been involved in putting in place an extensive support network inline with the Child Protection Plan that was imposed.

Actions taken by FS After the fire there has been an extensive HFSC after the fire: at the property by the Community Safety team. This included installation of further smoke detectors and fire safety advice to the occupier.

3 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 26/05/09 Incident Number: 19621091

Type of Property: House

ADF, Deliberate: ADF

Age of Fatality: 71 Date of Birth(s):

Cause of fire: The evidence shows that the cause of fire was a (Location, type) discarded cigarette onto a pile of papers.

HFSC completed: No HFSC was completed at this property prior to the fire.

Detection: No smoke detectors fitted in property

Other Brigade contact: None

Hot Strike: After the fire 35 HFSC’s were carried out on the street

Other agency After extensive research no agencies were found involvement: to have had any input with the occupant.

4 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 02/06/09 Incident Number: 21311091

Type of Property: House

ADF, Deliberate: ADF

Age of Fatality: 84 Date of Birth(s):

Cause of fire: The evidence suggest the fire was started by a (Location, type) naked flame from a match that dropped onto to an incontinence pad

HFSC completed: No HFSC was completed at this property prior to the fire.

Detection: 1 battery detector – when tested after the fire, was found not to be working

Other Brigade contact: After the fire a HFSC was carried out on 9th June 2009

Hot Strike: After the fire 10 properties on the road had HFSC’s

Other agency The occupier was known to the local intermediate involvement: care team who visited daily to provide care and change dressings and check on general health issues. No formal fire safety risk assessment had been carried out by the care providers.

Actions taken by FS The intermediate care team has been given an after the fire: awareness of general fire safety in the home issues and currently a formalised risk assessment process is being devised with the help of the high risk team.

5 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 02/07/09 Incident Number: 27989091

Type of Property: House

ADF, Deliberate: ADF

Age of Fatality: 32 Date of Birth(s):

Cause of fire: The cause of the fire appears to be a chip pan (Location, type) which had been left unattended in the kitchen.

HFSC completed: A HFSC had been carried out on 5th November 2007.

Detection: 2 battery smoke detectors – sounded at the time of the fire

Other Brigade contact: None

Hot Strike: 13 HFSC’S were carried out and as had further leafleting in the area.

Other agency On investigation the occupier was known to Social involvement: Services, more specifically to a hospital specialising in mental health problems. The staff refused to divulge any further information and they stated they would only give information to the Coroners Officer.

6 West Yorkshire Fire and Rescue Service Death Report information

Date of Incident: 25/10/09 Incident Number: 53023091

Type of Property: House

ADF, Deliberate: Deliberate

Age of Fatality: 48 Date of Birth(s): 27/03/1961

Cause of fire: The evidence suggests the occupier has lit a (Location, type) candle and has then ignited some combustibles in the room which has spread to the rest of the room.

HFSC completed: There had been no HFSC carried out at this property prior to the fire.

Detection: 2 smoke detectors fitted – did not operate due to location

Other Brigade contact: None

Hot Strike: Hot strike carried out and 107 properties had a HFSC completed.

Other agency The occupier has been involved with several involvement: agencies including the Police, Social Services and mental health teams. The extent of the involvement is unclear at this time but information from the ongoing investigation will be in the coroners report.

WEST YORKSHIRE ITEM No. FIRE & RESCUE FULL AUTHORITY 18 December 2009 AUTHORITY

REPORT OF: DIRECTOR OF FIRE SAFETY & COMMUNITY RELATIONS

PURPOSE OF REPORT: To inform Members of the details and causes surrounding the accidental dwelling fire fatalities since April 2009, the work being carried out to prevent such occurrences, and a Metropolitan Fire & Rescue Services comparison over the 9 years of the PSA period.

RECOMMENDATION: That Members note the content

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS

EXEMPTION CATEGORY: NONE

CONTACT OFFICERS: Ruth Cornelissen, High Risk Manager 0113 3874351

SM Chris Clarke, Fire Investigation 01274 655656

BACKGROUND PAPERS:

Management Team report June 2009 on the Development of the High Risk Team Management Team report July 2009 on the systems in place to target HFSC’s

SUMMARY

This report outlines the details surrounding the accidental dwelling fire fatalities since April 2008, and highlights that the majority of incidents are no longer consistent with traditional causes of fire. It also provides details that demonstrate that West Yorkshire Fire & Rescue Service is the top performer amongst the Metropolitan Authorities in terms of accidental dwelling fire deaths, and there has been a significant downward trend in accidental dwelling fires since the start of the PSA in 1999/2000. The report also details some of the areas of work being undertaken to ensure that WYFRS is effectively targeting resources to reduce the risk of accidental dwelling fires. Appendix 1. of the report details the 8 fire related fatalities (7 incidents) from April 2009 to October 2009, with a brief history of the incident to demonstrate the unusual nature of some of the incidents.

1. BACKGROUND

1.1 In the fiscal year 2008/09, there were a total of 15 deaths caused by fire, 13 of which were in dwellings. Of those 13 deaths, 8 were attributed to an accidental cause, 6 of which were male and 2 female, and 4 aged over 65 years. From April 2009 to the end of October 2009, there have been 8 fire related deaths, 6 of these are recorded as accidental (3 male; 3 female; 2 of which aged over 65 years and 3 young children), although investigations are still ongoing for some of the incidents. For the same period, April to October 2008, there were also 6 accidental fire related deaths.

1.2 The investigation into the cause of each fire death is being scrutinised much more closely, particularly now with the additional staffing resources resulting from the recent expansion of the High Risk team. Lessons learnt from the circumstances of each case being taken forward internally and externally with partners. The High Risk Manager is responsible for co-ordinating this area of work, ensuring that after every fatal fire a ‘case conference’ is held between all of the agencies concerned to discuss the circumstances surrounding the death, and inform all parties of what can be done to ensure that the circumstances are not repeated.

1.3 The High Risk Co-ordinators are working closely with the Fire Investigation team following fatal fires and also serious near misses, assisting in the investigation of the lifestyle of the victim and the previous involvement by West Yorkshire Fire & Rescue Service (WYFRS) and other agencies. This work results in improved intelligence around causes of fires, and therefore helps in identifying those organisations that can assist in identifying those most vulnerable to fire risk.

1.4 Accidental dwelling fire deaths over the last six years have been analysed to establish if any common factors were present in each of the incidents or if a number of factors prevailed. That analysis showed that a greater percentage of those who died in fires were either, over 60, were alone at the time of the fire, had some physical or mental impairment, smoked, had consumed alcohol or were known to other agencies. In fact many fell into more than one of these factors and it was established that if three or more of those factors existed then a working smoke detector may not have been a single adequate control measure.

1.5 To assist station personnel and Community Safety staff to target the most vulnerable members of the community, in terms of risk from fire, three targeting streams have been established. Lifestyle data mapping, hot strike targeting and partnership referral schemes with external agencies.

1.6 Recent analysis of accidental dwelling fire deaths over the last few years, has highlighted that the majority of incidents are no longer consistent with traditional causes of fire. Many of the fires involving fatalities have been shown to be the outcome of lifestyle and other external influences. This was confirmed by HM Coroner R. Whitaker who recently made the following statement during an inquest into a fire death. “Very few fire deaths that come before me are simple deaths, rarely do I see fires which involve a chip pan or a faulty television set. Many of the fires are complicated by issues around social care and deprivation.” (Whitaker, R 2009)

2. INFORMATION

2.1 The High Risk Manager is responsible for evaluating trends and formulating risk reduction strategies within the Fire Safety & Community Relations Directorate. As a result of recent analysis, it has been observed that the trend line of accidental dwelling fires and their associated injuries and deaths is significantly down from the start of the PSA period, 1999/2000. Graph 1 below clearly shows the relationship between the reduction in accidental dwelling fires and associated injuries and deaths. The numbers at the start of the PSA period compared to the numbers in 2008/09, show a 36% reduction in accidental dwelling fires, achieving a 59% reduction in accidental dwelling fire injuries and a 55% reduction in accidental dwelling fire deaths. This demonstrates that the work undertaken as part of the Integrated Community Fire Safety Strategy, has resulted in a higher rate of escape from accidental dwelling fires, which can be attributed to increased smoke alarm ownership, improved targeted fire safety education, and closer partnership working with those organisations that can assist in identifying those people most at risk.

Graph 1

Accidental Fires, Injuries and Deaths at start of PSA period, 1999/2000 compared to 2008/09

10000

1939 1000 1233 Accidental Dwelling 381 Fires 153 Accidental Dwelling 100 Fire Injuries

18 Accidental Dwelling Fire Deaths 10 8

2.2 Further research has been carried out into fire related deaths across the Metropolitan Fire & Rescue Services (F&RS). During the fiscal year 2008/09, the WYFRS fire death statistics were comparable with the other Metropolitan F&RS when analysed as per 100,000 population, see Graph 2 below. In terms of accidental dwelling fire deaths, WYFRS performed best when compared to all Metropolitan F&RS, having the lowest number of deaths at 0.35 per 100,000 population. This is a superb achievement against those Authorities that also have high levels of social deprivation and at risk groups within their communities, and can be attributed to the targeted prevention and risk reduction work within the three main targeting streams: Lifestyle Data; Hot Strike Policy; Partnership referrals.

2.3 The core business of WYFRS is to deliver against the National Indicatior NI 49 (Number of primary fires and related fatalities and non-fatal casualties, excluding precautionary checks and first aid cases), and therefore the reduction in all fire deaths. In 2008/09 the 15 fire deaths in West Yorkshire resulted from 14 incidents, 1

incident resulting in 2 fatalities. The total number of fire deaths across the Metropolitan F&RS show that WYFRS was placed third in the comparative table. The discrimination between the level of accidental fire deaths (top performing) and total fire deaths (third performing)) when compared to other F&RS, may be explained by our intensive prevention focus on the reduction of accidental dwelling fires.

Graph 2

Total and Accidental Dwelling Fire Deaths per 100,000 population 2008/09 - Metropolitan F&RSs

1.800 1.600 1.400 1.200 Total Fire Deaths 1.000 0.800 Accidental Dwelling Fire 0.600 Deaths 0.400 0.200 0.000

e e n e ter d ds r hi an eysi dl ks ondo orkshir nches s or L Y a Mi Y st M Mer st h Tyne & Wear ut o We ater We S re G

2.4 The Fire & Rescue Service is one of many agencies that are involved in the performance delivery of NI 120 (All-age all cause mortality rate PSA 18). As a percentage of mortality across West Yorkshire, the deaths from fire account for less than 0.06%.

Mortality Rates 2008/09

District Population** All-Age, All-Cause All Fire Deaths per Mortality per 100,000 Population 100,000 Population Leeds 750,000 1232 0.8 (6 deaths) Bradford 497,400 1343 1.0 (5 deaths) Wakefield 321,617 1356 0.9 (3 deaths) Calderdale 200,100 1239 0.0 (0 deaths) Kirklees 400,989 1291 0.25 (1 death) ** Population figures based on 2007 estimates

2.5 Case Study

2.6.1 As HM Coroner has suggested, many of the fire deaths are complicated by issues around social care and deprivation. There are a number of incidents which highlight the challenges faced by the WYFRS in its strategies to reduce injuries and deaths from fire. One such incident involves the death of a twelve year old boy who died alone locked in his bedroom whilst the rest of the family were out. The WYFRS

received a call to a house fire at 23:28 hrs and sent the predetermined attendance of “two pumps”, which was increased to three pumps when it was confirmed at the scene that “persons reported” trapped. The property was a three bedroom town house, which on arrival of the first fire crews was fully smoke logged. A severe fire was located in the ground floor lounge which had burnt through the ceiling into the double bedroom above. Both areas of fire were quickly extinguished and a search carried out for a young boy who was reported by neighbours to be in the house.

2.6.2 Within a few minutes, the body of a naked boy was found in a locked front bedroom. That bedroom was a small, single bedroom, that had been adapted for use as a ‘safe room’ for the boy who was severely autistic. The ‘safe room’ was devoid of any furniture, bedding or floor covering, and the walls, which should have been protected by foam filled padding, had the padding missing with the exception of the door. The window was boarded on the inside and flush with the frame, the central heating radiator and light switch had been removed to prevent self injury. The door to the bedroom had the handle removed from the inside and was fitted with a small clear ‘peep hole’ similar to that found on a prison cell door. The boy would be placed in this room at 19:00 hrs and would stay there until 07:00 hrs the next morning before leaving for a day care centre. Because of his destructive nature all his clothes would be removed before placing him in the room and his only comfort was a single fleece blanket.

2.6.3 It is alleged that a third party or third parties had broken into the property and set fire deliberately to an item of furniture. However, this is still subject to a criminal investigation.

2.6.5 A serious case review has been convened by the Safeguarding Children’s Board, chaired by the Police. The WYFRS have made representation on the review, however, were not initially invited to form part of the review panel. Following consultation with the lead Fire Investigation Officer, the WYFRS District Manager and the Chair of the Safeguarding Board, the WYFRS views on the case were put to the Board. The outcome of the serious case review is due early in the New Year.

3 FINANCIAL IMPLICATIONS

3.1 There are no financial implications arising from this report.

4 EQUALITIES & FAIRNESS ISSUES

4.1 Equality data is collected and utilised to identify appropriate agencies to work in partnership with at risk groups.

5 HEALTH & SAFETY ISSUES

5.1 There are no Health and Safety issues surrounding the analysis of the fatal fire data. Sufficient and adequate risk assessments exist within the Fire Safety & Community Relations Directorate for carrying out targeted risk reduction work.

6 RECOMMENDATIONS

6.1 That Members note the content of this briefing report.

WEST YORKSHIRE ITEM No. FIRE & RESCUE FULL AUTHORITY 18 DECEMBER 2009 AUTHORITY

REPORT OF: DIRECTOR OF FIRE SAFETY & COMMUNITY RELATIONS

PURPOSE OF REPORT: TO INFORM MEMBERS OF ACTIVITIES WITHIN THE FIRE SAFETY GROUP TOGETHER WITH HALF YEARLY STATISTICS - 1 APRIL 2009 TO 30 SEPTEMBER 2009

RECOMMENDATION: THAT THE REPORT BE NOTED

LOCAL GOVERNMENT (ACCESS TO INFORMATION) ACT DETAILS)

EXEMPTION CATEGORY: NONE

CONTACT OFFICER: DC McINTOSH 01274 655705

BACKGROUND PAPERS: NONE “Making West Yorkshire Safer”

1. BACKGROUND

1.1 Attached is a report detailing Fire Safety and Community Relations activity within the County for half year April 2009 – September 2009, together with future service targets.

2. INFORMATION

2.1 During the year, we have increased the efforts put into fire safety by:

Offering free home risk assessments to people most at risk from fire; Expanding our work with young people who have a history of starting fires or of making false alarm calls; Targeting our fire safety activities at people who are known to be at higher risk from fire; Reducing the number of deliberate fires; and Reducing the number of unwanted fire signals from automatic fire detection systems in commercial premises. Developing our road safety policy.

3. FINANCIAL IMPLICATIONS

3.1 There are no additional financial implications arising from this report.

4. EQUALITY & FAIRNESS ISSUES

4.1 No equality and fairness issues to report

5. SUMMARY

5.1 The attached report summarises our performance against national and locally set service targets for 2009, April to September

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 2 “Making West Yorkshire Safer”

PSA Target - To reduce the number of accidental fire-related deaths in the home by 20% averaged over the 11 year period to 2010 compared with the average recorded in the five year period to 1999 – with no local authority fire brigade having a fatality rate more than 1.25 times the national average by 2010.

9 10 On Target 5

0 5-year 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 avg

Accidental Fire Deaths 23 14 10 17 17 15 11 12 10 8 6 Annual Projection 12 Rolling Average 23.4 18.7 15.8 16.1 16.3 16.1 15.3 14.9 14.4 13.7 Target of 20% reduction 18.4 18.4 18.4 18.4 18.4 18.4 18.4 18.4 18.4 18.4

Commentary – From 2001/02 WYFRA has consistantly performed better than the set target.

PSA Target - To reduce by 10% the number of deliberate primary fires by March 2010 from the 2001-2002 baseline.

9000

7500 9 6000 On Target 4500

3000

1500

0 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 Baseline Deliberate Primary Fires 8513 7754 6973 4866 3946 3496 3143 2865 1193 Targets 8513 8407 8300 8194 8088 7981 7875 7768 7662 Annual projection 2386

Commentary – The Authority has achieved year on year improvement over the last 7 years and will target resources to continue this trend.

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 2 “Making West Yorkshire Safer”

Local Target - Emergency calls (Target: = 15% reduction from 51,748 to 43,986 by March 2010)

60000

Yearly projection 50000 based on 6 months data

40000

9 30000 On Target

20000

10000

0 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 Emergency Calls 51748 49608 52909 43812 42347 42770 41373 36667 18860 Targets 51748 50778 49807 48837 47867 46897 45926 44956 43986 Annual Projection 37720

Commentary –The Authority has made steady progress year on year in reducing the number of emergency calls attended.

Local Target - All fires (Target = 10% reduction from 27,396 to 24,656 by March 2010)

30000

25000 Yearly projection basedon6 9 20000 15000 On Target

10000

5000

0 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 All Fires 27396 25932 28234 20236 19156 19049 17953 14852 8400 Targets 27396 27054 26711 26369 26026 25684 25341 24999 24656 Annual Projection 16800

Commentary – The Authority has achieved year on year improvement over the last 4 years and has exceeded the 2010 target.

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 3 “Making West Yorkshire Safer”

Local Target - Accidental fire injuries (Target = 20% reduction from 339 to 271 by March 2010)

400

9 300 200 Yearly On Target projection based on 6

100

0 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 Accidental Fire 339 306 262 292 257 200 150 153 57 Injuries (143ii) Targets 339 331 322 314 305 297 288 280 271 Annual Projection 114 Commentary – The Authority continues to achieve a significant reduction of fire related injuries.

Local Target - Unwanted fire signals from commercial AFD equipment (Target = 10% reduction from 9,359 to 8,422 by March 2010)

10000

9000

8000 Yearly projection based on 6 7000 9 6000 On Target 5000 4000

3000

2000

1000 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 False Alarm 9358 9062 8392 8585 6171 6250 3340 AP Commercial Targets 9359 9202 9046 8890 8734 8578 8422 Annual Projection 6680

Commentary – If the annual projection is correct then we appear to have a rising trend in the number of unwanted fire signals. It is proposed to increase (from the existing FS establishment) the numbers of officers working in reduction activities during 2010/11

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 4 “Making West Yorkshire Safer”

Local Target - Malicious false alarms (Target = annual 5% reduction from 2,416 to 1,706by March 2010)

3000

2500

2000

1500 9 Yearly projection On Target based on 6 1000

500

0 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 False Alarm Malicious 2416 2321 1961 1840 1595 1373 1165 398 Targets 2416 2295 2205 2095 1990 1890 1796 1706 Annual Projection 796

Commentary – The Authority continues to achieve year on year improvement against this indicator.

Fire Safety – Notices Issued

40 35

30 25

20 15

5 0 Leeds Bradford Kirklees Calderdale Wakefield Enforcement Notices 61110 Extensions of Time 20101 Prohibition / Restriction 40300 Notices Action Plans 42 12 15 8 9 Prosecutions 00035

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 5 “Making West Yorkshire Safer”

Prosecution Details

Calderdale

Poundstretcher Ltd Regulatory Reform (Fire Safety) Order 2005. 3 charges relating to general fire precautions and emergency exit routes Poundstretcher Limited pleaded guilty to all three charges and were fined £4000 for each offence plus full costs of £2461.10 and a victim surcharge of £15

Wakefield

Poundstretcher Ltd T/A Ponden Mills Regulatory Reform (Fire Safety) Order 2005. 2 charges relating to risk assessments and fire alarms Poundstretcher Limited pleaded guilty to both charges. They were fined a total of £8500 plus full costs of £1349 and a £15 victim surcharge. The previous conviction from the Halifax case was brought to the attention of the court and consideration was given to refer one of the offences to the Crown Court for sentencing. The Magistrates however decided not to do this and instead fined the company the maximum amount.

Hampsons Plant World Limited 3 charges relating to risk assessments, fire alarms and emergency exit routes Hampsons Plant World Limited pleaded guilty to all three charges and were fined £4000 for each offence plus full costs of £2021.60 and a victim surcharge of £15.

Arson

There have been several high profile arson investigations by the Fire Investigation team. These have included two separate cases of “arson with the intent to endanger life”, both of which resulted in a life prison sentence for the perpetrators.

Fire Safety & Community Relations Activity Report 1 April 2009 to 30 September 2009 Page - 6